English - Support to Participatory Constitution Building in Nepal ...

FEDERALISM
DIALOGUES
Series 6
PROPOSED
NARAYANI
PROVINCE
18-20 May, 2010
Nepal

Published by :
Centre for Constitutional Dialogue (CCD) - 2011
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Disclaimer: These proposed provincial Federalism Dialogue reports have been prepared
by UNDP/SPCBN/CCD to support a fact-based discussion of the fourteen province proposal
presented by the Constituent Assembly (CA) Committee on State Restructuring and Division of
State Powers (CSRDSP) in February 2010.
Non-Endorsement: The preparation of these Federalism Dialogue reports in no way is intended
or should be construed to be an endorsement by UNDP or the CCD of this particular proposed
federal model or any recommendation in Nepal’s on-going debate on its future federal structure.
b Federalism Dialogues Series 6

FEDERALISM
DIALOGUES
Series 6
PROPOSED
NARAYANI
PROVINCE
18-20 May, 2010
Proposed Narayani Province Report
i

TABLE OF CONTENTS
Map of proposed 14 provinces ....................................................................................................................... iii
Introductory Note ................................................................................................................................................. 1
1. General Introduction...................................................................................................................................... 9
2. Overview of Proposed MITHILA-BHOJPURA-KOCH-MADHESH Province Federalism
Dialogue............................................................................................................................................................10
3. Major Issues......................................................................................................................................................13
4. Introduction to Dialogue............................................................................................................................14
A. Background
B. Venue and Date
C. Participants
5. Dialogue Proceedings..................................................................................................................................15
A. Day I
B. Day II
C. Day III
6. Evaluation Summary.....................................................................................................................................25
7. Recommendations........................................................................................................................................26
Annexes
Program Agenda...................................................................................................................................................29
List of participants................................................................................................................................................31
Presentation by local resource person..........................................................................................................33
Group Work Outcomes.......................................................................................................................................37
Map............................................................................................................................................................................41
ii Federalism Dialogues Series 6

Baitadi
Dadeldhura
Kanchanpur
Humla
!
SIMIKOT
Darchula
Khaptad
Bajhang
Mugu
Bajura
Jadan
!
DIPAYAL SILGADHI
Jumla
Doti
Kalikot
Dolpa
Achham
Karnali
Dailekh
Jajarkot
Kailali
!
BIRENDRANAGAR
Rukum
Surkhet Myagdi
Bardiya
Salyan
Rolpa
Baglung
Banke
Lumbini-Awadh-Tharuwan
Magrat
Pyuthan
Gulmi
! GHORAHI
Dang
Arghakhanchi
Palpa
Kapilbastu
Rupandehi
As proposed by the Committee
on State Restructuring and
the Division of State Power
Mustang
Manang
Tamuwan
Kaski
Lamjung
Gorkha
Parbat
Syangja
TANSEN
! POKHARA
Tanahu
Dhading
Narayani
!
!
Nawalparasi
BHARATPUR
Chitawan
Rasuwa
Tamsaling
Sindhupalchok
Nuwakot
Dolakha
!
KATHMANDU Kathmandu CHAUTARA
Solukhumbu
!
Newa
Bhaktapur
Sankhuwasabha
Taplejung
Kavrepalanchok
Lalitpur
Ramechhap ! SALLERI
Makwanpur
Sunkoshi
Parsa
Sindhuli
! KAMALAMAI
Bara
Rautahat
Sarlahi
Udayapur
Sherpa
Okhaldhunga
Mithila-Bhojpura-Koch-Madhesh
Mahottari Dhanusa
Siraha
! TRIYUGA
! JANAKPUR
Saptari
Kirat Limbuwan
Khotang
Bhojpur
Terhathum Panchthar
Dhankuta
Ilam ! ILAM
Sunsari
Morang
Jhapa
Proposed Narayani Province Report
iii

iv Federalism Dialogues Series 6

Introductory Note to Nepal’s Federalism
Dialogues
March-December 2010
Under the initiative of the Center for Constitutional Dialogue (CCD) and
the Civil Society Outreach (CSO) programme of UNDP/Nepal, federalism
dialogues were held in all of Nepal’s proposed fourteen provinces. The
main objective of the programme was to organize informed and reasonbased
dialogue between experts and provincial level stakeholders
(political party leaders, civil society members, ethnic activists etc.)
about the concept and global experiences of federalism in general and
the federal structure for Nepal proposed by the Constituent Assembly
(CA)’s Committee on State Restructuring and Distribution of State Power
(CSRDSP), in particular.
A strength of the programme was that
participants carried out a critical review
of CSRDSP’s overall proposal for a federal
division of Nepal, and also provided specific
feedback on their own particular provinces.
At the outset, the experts informed the
participants about different aspects of
federalism. The dialogue was organized so
that the experts presented their lectures in
four sessions during the first day and a half,
and the participants shared their thoughts
during the remaining day and a half.
Participants’ opinions and considerations
are largely covered in the subsequent 14
volumes. This introductory section covers
the lecture notes, prepared and presented
by the experts (Prof. Krishna Khanal and Prof.
Krishna Hachhethu) during the dialogues.
I. Nepal: Journey towards a
Federal Path
I. 1. Understanding federalism
- A single entity in the global map
of countries but incorporating the
existence of two political units,
each with their separate territory,
administration and political
structure.
- Rule by both the center and the
provinces. Rule by the province is
confined to its territory, but rule
by the center covers the entire
country.
- A constitutional division of power
between the center and the
provinces.
Proposed Narayani Province Report
v

- Self rule within the provinces and
shared rule at the center.
- No unilateral change in the
rules either by the center or by
the provinces. Changing the
rules requires a constitutional
amendment in which both the
center and the provinces will have
a role.
I. 2. Federal countries are constituted
by the ‘coming together’ of previously
independent political units (i.e. USA,
Switzerland etc) to achieve a common
goal, or by the ‘holding together’ of earlier
sub-political/administrative units (i.e. India,
Belgium, Spain, Austria etc) to manage social
diversity. There are altogether 28 federal
countries in the world.
I. 3. Logic and rationale for transforming
Nepal into a federal country
Three major reasons why Nepal is
moving towards a federal path:
- To address the rising aspirations
of identity of Nepal’s ethnically,
linguistically, culturally and
regionally diverse social groups,
and to manage the country’s
diversity.
- To create a strong foundation
for democracy by constituting a
political structure at the provincial
level.
- To create political economy units
for expansion and distribution of
services to the people.
I. 4. Transition towards federalism in
three stages
Stage 1: Constitutional division
of power between center and
provinces;
Stage 2: Designing new laws
and amending existing laws to
implement a federal structure;
Stage3: Creation of the political
and administrative structure of the
provinces.
I. 5. Possible consequences of heading
towards a federal path
- Expansion of the bases of state
authority to the provincial level to
address the collective aspirations
of caste/ethnic groups.
- Increase in the sense of ownership
of the state and nation of Nepal.
- Speed up in economic
development.
- Increase in the role of regional
parties and decrease in the role of
national parties.
- Center may remain strong as its
jurisdiction extends throughout
the entire country.
- Possible ethnicization in politics
and adverse impact on social
harmony.
- Possible reduction in the interprovincial
mobility of citizens.
- Provincial politics may have
serious problems of nepotism,
favoritism and corruption if not
properly handled.
- Creating a culture conducive to
federalism is the most challenging
task.
vi Federalism Dialogues Series 6

II. Review of the CA Proposal on
Federalism in Nepal
II. 1.
Federal units constituted
primarily on the basis of identity
but most proposed provinces are
multicultural
- Identity and capability are the
two main criteria for constituting
federal units. Identity in Nepal at
the time of designing the federal
units is largely constructed on an
ethnic and regional basis.
- Creation of 14 provinces is
primarily on the basis of identity.
Names of provinces are primarily
based on ethnic identity.
- Provincial boundaries were drawn
through deconstruction of the
present territorial boundaries of
29 districts (where necessary) and
the territory reformulated to suit
the creation of cultural territories.
However, most provinces appear
to be multicultural, as shown in
table below.
Caste/ Ethnic Status of the 14 Proposed Provinces
Caste and Ethnicity %
S. N. Name of Population Area Hill Indigenous Madheshi Other Majority Caste/ Target group
province
Sq Km caste People
ethnicity or
dominant
group
1 Limbuwan 933,000 9,000 34 64 - 1 Hill Caste Limbu (27)
2 Kirat 896,000 8,000 38 59 - 1 Hill Caste Rai (34)
3 Sherpa 89,000 5,000 21 78 - 1 Sherpa Sherpa (36)
4 Mithila- 6,940,000 14,000 15 24 49 12 Madheshi Madheshi (49)
Bhojpura-
Koch
Madhesh
5 Sunkoshi 699,000 5,000 47 51 2 - Hill Caste Chhetri (26)
6 Tamsaling 1,419,000 10,000 35 65 - - Hill Caste Tamang (44)
7 Newa 1,702,000 1,000 40 56 1 2 Hill Caste Newar (36)
8 Narayani 1,766,000 8,000 54 43 2 1 Hill Caste Brahmin (27)
9 Tamuwan 571,000 12,000 47 50 2 - Hill Caste Gurung (32)
10 Magarat 2,012,000 15,000 56 41 2 - Hill Caste Magar (34)
11 Lumbini- 3,765,000 15,000 33 36 23 8 Hill Caste Tharu (26)
Awadh-
Tharuwan
12 Karnali 987,000 18,000 80 15 - 4 Hill Caste Chhetri (42)
13 Jadan 48,000 15,000 60 35 - 4 Hill Caste Bhote
Lama(35)
14 Khaptad 1,151,000 14,000 95 1 - 3 Hill Caste Chhetri (54)
Proposed Narayani Province Report
vii

II. 2.
There was unanimity towards
adopting a parliamentary system
at the provincial level
- Provincial government: Chief
Minister would be elected by
provincial legislature. (Committee
for the Determination of the Form
of Government).
- 28 items under the jurisdiction of
the province (including provincial
level administration, fiscal
management, taxation and other
services).
- 27 items under concurrent list
between the center and the
province.
- Provincial Legislature: A
35-member unicameral legislature
to be elected by a mixed electoral
system with equal weight to both
FPTP and PR. Those elected by
PR should be inclusive of social
groups (Committee for the Form
of Legislature).
- Provincial Judiciary: Appointment
of Chief Justice and Judges of
provincial courts by a special
committee (decided by High Level
Task Force).
- Provincial Administration: One
administrative system but
recognition of two structures
(central and provincial) at
three levels, giving priority in
recruitment to the people of
the concerned province/area
(Committee for the Determination
of the Form of Government).
- Two-tiered political/
administrative structure at the
provincial level: provincial and
local government and special
structures.
- 20 items under the jurisdiction of
the local government.
- 20 items under the jurisdiction of
the autonomous area.
The CSRDSP’s proposal seems to be
guided by the principle of centralized
federalism as its proposals provide
for:
1. Residuary power vesting in the
center.
2. One constitution, not many
constitutions.
3. Power of the center to dissolve
provincial government and
legislature.
4. Subordinate role of Upper House
(a house of provinces).
5. Constitutional Court – the final
body of dispute resolution – under
central jurisdiction.
6. A provision of mandatory
approval by 2/3 majority of central
legislature for revision of name
and boundary of province and
autonomous areas.
II. 3.
Division of Power between center,
province and local government/
autonomous regions
- 30 items under the jurisdiction
of the center (including defense,
security and foreign affairs, foreign
aid and international trade, currency
and national revenue, central level
administration, fiscal management,
and other services etc.).
II. 4.
7. Centralized revenue collection
and distribution system.
Provisions for self rule are vague
and ambiguous
1. Right to self determination is
granted to indigenous groups,
indigenous nationalities and
Madheshis, and is limited to the
extent of no right to secede.
viii Federalism Dialogues Series 6

II. 5.
II. 6.
2. Prime political rights at both
provincial level (non-mandatory)
and autonomous area level
(mandatory).
3. Referendum in case provincial
legislature’s decision (by twothirds
majority) to revise the name
and territory of province is not
approved (by two-thirds majority)
by the central legislature. The
same provision is provided for
creation of a new province or the
merger of two and more provinces
into a single province.
4. Special structures – Autonomous
Regions, Special Areas and
Protected Areas – under
jurisdiction of provincial laws.
Provision for decentralized local
government
Committee for the Form of Legislature
decided: 70% of the seats would be
elected on the basis of MMC electoral
system with provision of inclusive and
proportional representation of different
social groups. For the remaining 30%
of the seats, a list PR system ensuring
election of those communities that are
left out by direct election.
Committee for the Form of
Government decided: Executive
Committee of the local government is
constituted by: 5-7 members in Village
Committee; 5-9 members in Municipal
Committee; and 5-11 members in
Metropolitan Committee. Direct
election of Chair and Vice-Chair of the
local government but nomination of
members of the executive committee
of local government on the basis
of parties’ seats and strength in
legislative body of local government.
Provision is made for special
structure for tiny minorities
A. Autonomous areas for tiny
minorities living in a geographical
area (22 ethnic autonomous areas
identified).
B. Protected areas for most
marginalized and vulnerable
groups.
C. Special areas for most backward
areas.
Political/administrative structure and
functions of these special areas are yet to
be designed. Jurisdiction of autonomous
area is 20 items, including (1) exploration
and management of mineral resources,
(2) language, culture, script and religion,
(3) harnessing and utilization of natural
resources, and (4) customary courts –
which are not listed under jurisdiction of
local government.
An elected body of an autonomous area
has rights related to executive, legislative
and judiciary to the extent that they
should not contradict the provincial law.
II. 7. Some points that need to be
considered are:
1. Absence of provision of minority
rights at provincial level.
2. Inclusive and proportional
representation and quotas for
women and Dalits (3% and 5%
more than the size of the Dalit
population at the federal and
provincial levels respectively), and
their special rights.
3. A system of sub-provisions for
large provinces, like Mithila-
Bhojpura-Koch Madhesh and
Lumbini-Abadh-Tharuwan.
4. Framing of local units, including
Autonomous or Special or
Protected Areas as one political/
electoral/developmental and
administrative area to avoid dual
rule in one particular area.
Proposed Narayani Province Report
ix

5. Need for a clear provision
concerning what extra rights
an Autonomous or Special or
Protected Area enjoys over other
local government units.
III. New Dimension of Nepali
Nationalism: Rights of
Minorities
III. 1.
In a country like Nepal, with
caste/ethnic, linguistic and regional
diversity, federalism serves nation
building in the following ways:
III. 2.
- Recognition of identity
- Provincial autonomy
- Political management of diversity
- Rights of minorities
- Learning to live together
The CA Constitutional Committee defines
the Nepali nation as a multiethnic,
multilingual, multicultural society
in which people are bound together
with common aspirations and respect
for the national interest, independence
and integrity. Nepal is an independent
sovereign state characterized as a republic,
secular, inclusive, multi-ethnic
and oriented towards socialism.
Aspirations of the indigenous
nationalities and other social groups
from a federal structure:
- Identity and autonomy based on
caste/ethnicity, language, culture
and region.
- Constitutional provision for social
justice and positive discrimination
to end all kinds of discrimination
against ethnic groups, women,
Dalits, Madheshis and other
marginalized groups.
III. 3.
- Reservation for excluded groups
in proportion to the size of their
own populations.
- Inclusive and proportional
representation of all caste/ethnic
groups.
- Right to self determination as a
fundamental right.
- Political prime rights.
- Prime rights for indigenous
nationalities over land, water and
forests.
- Constitutional provision ensuring
rights as provided by ILO 169, UN
Declaration and international law.
- Mother tongue as medium of
education and also for right to
information.
minority groups
Provisions on the rights of
The CA refers to minorities as those groups
that have been discriminated against and
marginalized by the state. It also includes
those deprived and marginalized groups
that are numerically lower in terms of
caste/ethnicity, language and religion.
- Positive discrimination: though
providing equal rights to citizens
in the application of law and
distribution of opportunities, the
state can legally make specific
provisions for those who are
backward socially, culturally and
economically. The groups that
are identified as being entitled
to receive benefits from positive
discrimination are broad and
vague as they include all groups
except adult urban citizens.
- Political prime rights for the
targeted group for the post of
chief executive at the provincial
x Federalism Dialogues Series 6

level and in autonomous regions.
- Indigenous nationalities are
entitled to special opportunities
for the protection and promotion
of their language and culture,
and for their development and
empowerment.
- Indigenous groups, indigenous
nationalities and Madheshis have
the right to self determination.
So far as rights granted by ILO
169 are concerned, this applies
to those peoples who have been
living in the country since before
the construction of the present
territory of Nepal and who have
been left out of the mainstream of
development.
- Discrimination against Dalits
is a social crime and subject
to punishment. In addition to
a provision for reservations,
affirmative action and inclusive
proportional representation
in proportion to size of their
population, the representation of
Dalits in the state apparatus will
be higher by 3% at the central
level and 5% at provincial level.
- Concerning women, provisions
are made for gender equality,
reservations, affirmative action,
sexual and maternity rights,
and inclusive representation at
all levels of the state apparatus
in proportion to the size of the
population.
- All mother tongues are
national languages, but for
the present Nepali alone is the
official language of the central
government. In the future, other
languages may also be recognized
as official languages of the central
government provided the Linguistic
Commission recommends and
the central legislature approves.
At provincial and local levels, the
local languages could also be
used as official languages.
- Proposals are of made for 11
constitutional organizations,
some of which relate to the
excluded groups, i.e. a Women’s
Commission, Dalit Commission,
Indigenous
Nationalities
Commission,
Madheshi
Commission, Muslim Commission
etc.
IV. Fiscal Federalism
IV. 1
Understanding Fiscal Federalism
Fiscal federalism includes (1) income
and expenditure of all the three
levels of government: central,
provincial and local; (2) sources of
their income: self, shared and grants;
(3) equalization through extraction
of more revenue from developed
provinces and distribution of more
grants to underdeveloped provinces.
IV. 2. Sources of income
1. Central government: customs,
antasulka, VAT, institutional tax
and fees for different services;
2. Provincial government: income
tax, property tax, professional
tax, malpot, registration fees,
vehicle tax, entertainment tax,
advertisement tax, tourist fee,
agriculture income tax, and other
service taxes;
3. Local government/Autonomous
Area: rent tax, property tax,
vehicle tax, malpot tiro, tourism,
advertisement tax, registration
fees (land/home), and other fees.
Other income of the three levels of
the government is shared income,
i.e. royalties from natural resources
Proposed Narayani Province Report
xi

(i.e. hydropower, mines, forests etc.)
and tourism. The proportion of
sharing will be decided later by law.
The present state of sharing by local
government is 50% in hydropower,
30% in tourism, 5-90% in registration
fee (land and property), 50% in mines
and 10% in forests.
In addition, each of the three
levels of government receives
aid and grants, i.e. foreign aid for
the central government, grants
from the center to the provinces
(provincial governments are entitled
to receive foreign aid directly but
this requires pre-approval of the
central government), and grants
from both center and provinces to
local governments and autonomous
areas. The present state of grants to
local government is 5-8% in annual
budgetary allocations, and/or 3% of
total national income.
IV. 3. Proposal for centralized revenue
collection and distribution system
The central government earns more
than provincial governments. The figure
for national revenue and its sector-wise
distribution is: VAT: 30%, institutional
tax: 18%, commodity tax from foreign
trade: 17%, and Antasulka: 9%. As all
these sources of income fall under the
jurisdiction of the central government,
more than three-fourths of the total
national revenue goes to the central
government treasury. In addition, foreign
aid, which contributes around 25% of
total budget and more than 50% of the
development budget, also falls under the
earnings of the central government.
So a centralized revenue collection
system is likely to be a characteristic
of Nepali federalism. This is also
true in Australia, where the central
government earns 69 % of national
revenue. Canada provides a different
model – a decentralized revenue
collection system – in which about
55% of the national revenue is earned
by provincial and local governments.
Germany and Belgium give another
different model – a system of
centralized revenue collection but
decentralized distribution.
Centralization of distribution is likely
to be a feature of Nepali federalism
because at present the contribution
of local government to total national
income is only 5%.
IV. 4. Principles of equalization
The proposed 14 provinces are
asymmetric in their levels of
development. 85% of national
revenue is collected from 7 out of the
total 75 districts, and the remaining
15% is collected from the other 68
districts. 45 districts (60% of the total
of 75 districts) are unable to generate
sufficient revenue to finance their
total expenditures.
To ensure economic equalization of
the provinces over time, the model
of federalism in Nepal should be
cooperative and interdependent at
both levels, with (1) a vertical relation
between the center and provinces,
and (2) horizontal relations among
the provinces. Taking into account the
imbalanced economic development
among the proposed provinces,
there should be provisions to extract
more from developed provinces
and distribute more to the least
developed provinces, and to provide
unequal distribution of grants in favor
of the least developed provinces.
The question of economic
equalization is taken up by different
mechanisms – by an independent
expert commission in India, by an
intergovernmental council in Pakistan,
by the federal legislature in the USA and
by the federal government in Canada.
xii Federalism Dialogues Series 6

1. General Introduction
Nepal is in a transitional phase, moving from a preexisting unitary form of
governance to a federal structure. The Committee on State Restructuring
and Distribution of State Power (CSRDSP) of the Constituent Assembly
(CA) has published a report recommending a federal structure
comprised of 14 provinces. However, the general public as well as the
people involved in the political movement, the ethnic movement and
others are still not clear about federalism, its opportunities, challenges,
functioning and implementation. Recognizing the need for discussion
on federalism throughout the country, the Center for Constitutional
Dialogue (CCD), in collaboration with UNDP’s Civil Society Outreach/
Support to Participatory Constitution Building in Nepal (CSO/SPCBN)
initiative, initiated a series of fourteen federalism workshops, one in
each proposed province, between March and December 2010.
The primary objectives of the workshops were
to share fact-based information, initiate local
discussions and seek recommendations with
district representatives, local political party
cadre, civil society leaders, marginalized
representatives and local government
representatives concerning the following
aspects of federalism:
• forms and structures by which
federalism may be designed;
• individual and collective minority
rights, fiscal federalism, indigenous
rights;
• relationships among central,
provincial, autonomous regions and
local governments;
• CA CSRDSP’s preliminary draft and
report ; and
• practical problems and challenges in
implementing the federal structure.
• proposed powers of provinces,
autonomous regions and local
governments;
Proposed Narayani Province Report 1

2. Overview of the Proposed Narayani
Province Federalism Dialogue
The sixth of the SPCBN/CCD Federalism Dialogues was held from 18-20
May 2010 in Bharatpur (Chitwan), the proposed capital city of Narayani
province. The proposed province comprises the adjoining VDCs and
Municipalities of eleven districts: Chitwan, Dhading, Gorkha, Kaski,
Lamjung, Makwanpur, Nawalparasi, Nuwakot, Parbat, Syangja and
Tanahu.
The Chhetri and Brahmin communities
are the largest population groups in this
proposed province. More than 50 participants
attended the Dialogue, including all the
province’s major population groups. Some
of the participants were formerly elected
DDC representatives and the Dialogue was
significantly enriched by their experience.
However, there were no participants
from smaller indigenous communities,
e.g. the Chepang, Dura, Darai and Kumal
who also live in this province. In future
Dialogues participants from such historically
marginalized communities should be
specifically invited.
Some interesting features of this Federalism
Dialogue are the following:
• The participation of the major political
parties, including the UCPN (Maoist),
NC, UML, Madheshi Jan Adhikar
Forum, TMDP and Sadbhavana, richly
contributed to the quality of the
Dialogue.
• For the first time Rastriya
Janmorcha was represented in a
Federalism Dialogue. As expected,
its representative expressed his
disagreement on federalizing the
Nepali state. He recommended that
there should be a national referendum
on this issue.
• The Madheshi parties, as expected,
expressed concern over the division
of Tarai-Madhesh, since they continue
to stress that the whole of the Tarai
should remain one province.
• The contribution of the Tharu activists
who actively participated in the
Dialogue was very beneficial for the
overall discussion.
• The Tharu activists disagreed with
the term ‘Madhesh’ and asserted
that the Tharu constitute the actual
indigenous people of the Tarai.
• Although the Tharu participants
were not opposed to the division of
the Tarai into two or more provinces,
they expressed reservations about
including Chitwan and parts of
Nawalparasi in the hill-dominated
Narayani province. They frankly said
that the proposed province lacks
Tharu ownership or support.
• The Tharu participants preferred to
carve out a separate province (‘Central
Tarai’) consisting of the districts from
2 Federalism Dialogues Series 6

Chitwan to Kapilvastu.
• Most participants from hill districts
such as Parbat, Kaski, Gorkha,
and Lamjung complained that
the delimitation of the provincial
boundary is neither convenient nor
practical for them.
• Participants from the Gurung,
Tamang and Tharu communities were
seriously concerned about their place
and position within the Narayani
province.
• Some of the participants from ethnic
communities stated that there is no
need for a Narayani Pradesh. They
suspect that the proposed province
will undermine Tamsaling, Tamuwan
and Magarat and believe that the
adjoining areas should be included in
these respective provinces.
• Even participants from the Brahmin/
Chhetri communities, particularly
from Parbat, Kaski and Syangja, said
that they would not mind if their
VDCs were included in either the
neighboring Tamuwan or Magarat
provinces.
• The participants were also critical
of the CA CSRDSP report on the
distribution of power, which they
found overly centralized both in fiscal
and political matters.
• The participants demanded more
powers allocated to the province—
particularly in revenue sharing—and
more limited power at the center.
• The participants were firmly against
the center’s proposed power to
dissolve the provincial government
and legislature.
• The participants were also seriously
concerned about the limited power
allocated to the local governments.
They found the proposed list of local
government powers to be inadequate
and requiring expansion.
• Similarly, they stated that the local
government’s share of royalties
and other natural resource benefits
should be clearly spelled out in the
constitution.
• Some of the participants, especially
the Brahmin/Chhetri participants,
suggested that the provinces should
be created by balancing both the
Tarai and the hills, with the number
of provinces reduced and based on
multiple identities.
Proposed Narayani Province Report 3

3. MAJOR ISSUES
Disagreement with the structure of the province: The participants
disagree with the proposed structure of the Narayani province. Different
groups of participants have their own reasons for this disagreement. The
Madheshi people argue against the proposal for 14 provinces and claim
that only three provinces would be sufficient to represent the identity of
Nepal. Nepal’s identity is represented by the mountains, hills and Tarai
which includes all people living in different areas of the country. But for
the Tharus, the use of the word “Madhesh” in place of “Tarai” has displaced
the Tharu, who have been living in Chitwan for a long period of time. The
Brahmin/Chhetri (B/C) participants feel that VDCs of adjoining provinces
with dense B/C populations should be included in Narayani province.
Discourse on federal capital: Some participants
proposed establishing Chitwan as Nepal’s
federal capital, considering the country’s
topography. The Madheshi people stated that
the federal capital should be accessible to all
people of the country and Chitwan is centrally
located. However, the participants from Kaski
did not agree with this argument and are not
interested in promoting this idea. This issue
should be discussed widely to reach a decision
acceptable to the majority.
Identical positions on the issue of Nawalparasi:
Participants asked to exclude Nawalparasi from
the province and suggested including it in
Tamuwan province. Interestingly, the participants
in the Tamuwan Federalism Dialogue had a similar
thought. They proposed making Tamuwan a
province that includes land of mountains, hills
and Tarai, including Nawalparasi, to establish a
link with the Tarai.
Skeptical thoughts about the Madhesh:
At the beginning of the discussion a serious
argument arose among the participants
concerning issues of the Madhesh.
Participants not from the Madheshi
community raised voices of doubt against
recognizing the Madheshi people as
people of Nepal. The representative of the
Sadbhawana party from Nawalparasi and
other Madheshi participants were frustrated
with their status in the country and provided
justifications concerning their contributions
and identity as Nepali. The facilitators’
intercession and mediation moved this
discussion in a progressive direction and
engaged the participants in discourse about
federalism.
Demand to reallocate more authority to local
government: All the participants object to the
fiscal arrangement in the proposed federal
structure. They believe this provision will
support the continuity of the current system
and promote feudal practices. There was little
realization of the need for a strong center to
support the financially weaker provinces, while
according to the principle of federalism they
want the assurance of building a stronger local
authority with a larger allocation of revenue.
4 Federalism Dialogues Series 6

4. INTRODUCTION TO DIALOGUE
A. Background
The UNDP/CCD organized the 6th provincial
Federalism Dialogue in Bharatpur, Chitwan,
and proposed capital city of Narayani
province. This province includes 272 VDCs
(including seven municipalities) of eleven
districts: Chitwan, Dhading, Gorkha,
Kaski, Lamjung, Makwanpur, Nawalparasi,
Nuwakot, Parbat, Syangja and Tanahu.
The objective of the workshop was to
sensitize the participants to the concept
of federalism and federal structure, its
advantages as well as challenges in relation
to the general context of Nepal and to
explore the existing facts on opportunities
and challenges for the implementation of
a federal structure. The program aimed to
provide social and political activists with
general insights into various dimensions of
federalism from the experts, and to promote
discussion on the local context, enabling
people to make recommendations to the
Constituent Assembly to address their needs.
The program was designed to take forward
the momentum of dialogues on federalism
in relation to the general context of Nepal as
well as particular local contexts.
B. Date and Venue
The three-day provincial Federalism Dialogue
was organized in Bharatpur, Chitwan from
18 to 20 May 2010 in the seminar hall of Hotel
Global, with the partnership of the Madheshi
NGO Federation. The workshop was residential
to give people a suitable environment and
sufficient time for interaction and discussion
away from their daily routines.
C. Participants
The 56 participants included representatives
from various political parties, social organizations,
and human right organizations, indigenous
and ethnic organizations. Representing the
various political parties were participants
from Nepali Congress, CPM/UML, Maoist,
Sadbhawana Party, Rastriya Jana Morcha,
and MJF. Indigenous, Tharu women’s, and
Dalit organizations represented included
the Indigenous Coordination Council, Tharu
Kalyankari Sabha, and Tharuhat Sangharsa
Samiti. The CDO of Chitwan district also
visited the workshop on the first day.
A wide variety of ethnicities was represented,
including Tharu (14%), Other Indigenous
(37%), Brahmin/Chhetri (38%), Middle Castes
(9%), and Madheshi Brahmin (2%). Women
constituted 32% of the participants. The name
list of the participants is provided in Annex II.
MB (
Madhesi
Brahmin)
2%
Participation by Ethnicity
MC
(Middle
Castes)
9%
Brahmin
34%
Female
32%
Participation by Gender
IN
(Indigeno
us)
37%
Tharu
14%
Chhetri
4%
Total participants = 56
Male
68%
Proposed Narayani Province Report 5

5. DIALOGUE PROCEEDINGS
A. DAY I (18 May 2010)
Day l was devoted to exploring the general concept of federalism, its
applicability in other countries and its journey in Nepal.
Inauguration
Prof Krishna Hachhethu outlined that a
federal structure has been developed for
Nepal but not yet implemented. Thus the
different aspects of federalism, like the
rights of the center and the province, and
the economic sustainability of the provinces
must be understood. Prof Krishna Khanal
clarified that according
to the request of the
political parties and
the government of
Nepal, the UN, through
the SPCBN, has been
supporting
constitution
the
making
process. However, it is the people of Nepal
who are responsible to make an appropriate
constitution. The UN will observe whether
the constitution ensures equal rights to
all the people. We should also uphold the
responsibility to ensure that the constitution
includes the spirit, values and emotions of
the people of Nepal. Mr. Basanta Raj Gautam,
CDO of Chitwan, stated, “Federalism is unity
in diversity and it is the interdependence
of sharing both political power and natural
resources. This constitution should include
the thoughts of common people. Although
the concern of the international community
in constitution making is good, there must
To address ethnic diversity
and geographical
complexity, federalism is
necessary.
- Padam Gurung
be limits.” Mr. Kausheldra Mishra from the
Madeshi NGO Federation, co-partner for this
workshop, said, “This workshop is conducted
to have an informed dialogue with the
civil society and to collect suggestions to
improve the different thematic reports for
making the constitution.”
Expectation Collection
The participants were
interested to have an
open discussion on
federalism and the
making of a democratic
federal
constitution.
They expected to
become clear about
the issue of federalism, its management
and challenges, its relevance for Nepal, and
successful practices of federalism in the
world. They wanted to know the advantages
to people from federalism in the local
context. They wanted to learn about the
proposal of the CA Committee on State
Restructuring and the Distribution of State
Power, and the difference between state
restructuring and federalism.
They expected to discuss why ethnicity and
language are a major concern in making
provinces in Nepal, and the meaning of
6 Federalism Dialogues Series 6

ethnic autonomy. They wanted to analyze
the pros and cons of the proposed 14
provinces, their forms and nomenclature,
and the suitable provincial allocation of
Chitwan on the basis of ethnicity and
language. Further, participants wanted to
discuss the significance of Tharus in Narayani
Province.
Specifically, the participants wanted to
discuss the equal rights of women in the
constitution, the rights of minorities, and
right to self-determination of aboriginal and
indigenous people in the federal structure.
They wanted to learn about prime rights/
special rights, ethnic
autonomy, the election
system, inter provincial
relations and power
distribution, and how
services will be provided
to the local people by
the local government
in the federal structure.
C o n s t i t u t i o n a l
implementation of ILO
169 was also mentioned.
Presentations from Facilitators
Presentation on Federalism, an
introduction to Nepal’s Federal Future
Prof. Khanal introduced the prospect of a
federal Nepal in the future and emphasized
that Nepal will be a federal state with a
definite geographic administrative structure.
Although internally it will provide for different
identities for different groups, externally
it will have a single national identity. He
explained to participants that countries like
Nepal, Spain, and Belgium adopt federalism
Federalism was included
in the interim constitution
after the Madhesh
movement. Thus the issue
of the Madhesh should
be clearly addressed in
federalism.
- Girija Gairi
to manage diversity and recognize particular
identities while promoting national integrity
within the country. However, a proper
mechanism for managing conflict must be
developed to sustain the federal structure.
He stated that in the federal system, there is
shared rule in the center and self rule in the
provinces, so the provinces can make their
own provincial laws, but only the center can
make laws for the whole country.
Expressing the thoughts of the participants,
Mr. Padam Gurung asserted that “Federalism
is the need of our country due to its
diversity of ethnicity and geography, in
order to recognize this
diversity.” However, Mr.
Bijay Singh Lopchan
noted that in the
process of recognizing
different
identities,
“Ethnic conflict might
arise in future.” While
participants agreed that
federalism is necessary
for the country at
this time, there is
dissatisfaction with the
process. Mr. Bikash Lamsal, the CPM UML
representative from Parbat, stated, “Proper
homework has not been done to establish
federalism in the country.” Anil Gaund,
representative of MJF Democratic from
Nawalparasi, stated that “Federalism in Nepal
is the result of the Madhesh movement and
thus the issue of Madhesh should be well
addressed.” He added that “it is appropriate
to make only three provinces - Mountain, Hill
and Madhesh.” G.K. Basyal, representative of
the Maoist party from Parbat, said that “The
Proposed Narayani Province Report 7

issue of prime rights is highly discussed, and
prime rights should also be used to provide
compensation to the Dalits.
”The participants asked questions to
Prof. Khanal related with implementing a
federal system.
federation and cannot address all the
issues raised by different groups. Three to
five Madhesh provinces can be created to
accommodate the issues of this area.
Presentation on the Federal structure at
the Provincial Level
Q. How will issues of language,
representation, etc of different ethnic
groups be addressed in the federal system?-
Padam Gurung
A. In the provincial level the use of different
languages can be practiced.
Q. What is the
meaning of Madhesh?
Is it an ethnic group or
not? - Girija Gairi
A. After the
introduction of multi
party system arose
in 1951, the issue of
ensuring rights for
Madheshi people was
raised. Again, during
the making of the
constitution in 1990
various parties raised the issue of ensuring
rights to Madheshi people. However in
all these years the issues of the Madhesh
have not been properly addressed. The
word Madhesh has a political identity and
cultural aspect too. Thus the Tharu, Rajbansi
and Muslims do not want to recognize
themselves as Madheshi. However, while
in federalism there might be compromise
on some issues by some groups. Building
only three provinces – Mountain, Hill and
Madhesh – will create an unbalanced
Except for Narayani,
all provinces recognize
the historical identity of
ethnicity. So only the hills of
Chitwan should be included
in Narayani and the plain
area of this province should
be included in Tharuhat.
-Birendra Mahato
Prof. Krishna Hachhethu stated that the
structure of federalism is based on ethno
geography. Further, to ensure the rights of the
minority, provision is made for autonomous
regions, protected areas and special areas.
However, no proper description has been
given about the size of population needed
to be recognized as an
autonomous region.
Analyzing
provincial
Birendra
commented,
the
structure,
Mahato
“Except
for Narayani all the
provinces
have
been created by
recognizing
the
historical background.
In that context all
the hilly area of
Chitwan in the Narayani province should
be included and the plain area should
be included in Tharuwan.” G.K. Basyal the
Maoist representative from Parbat, noted
that people living in Narayan Pokhari can
reach Pokhara in half an hour whereas
reaching the provincial capital, Chitwan,
requires more time. He concluded that “A
State Restructuring Commission must be
formed that includes party representatives
and experts.”
8 Federalism Dialogues Series 6

Satrajit Yadav from Nawalparasi said,
“Madheshis have been neglected since the
regime of Prithivi Narayan Shah. Tarai land
was distributed to the landless but not to
the people living in the Tarai. The people of
the Tarai were accused of being pro-Indian
and the government
hesitated to provide
them citizenship. Thus
to ensure the right of
the Tarai people their
representation
must
be guaranteed in the
legislative assembly.”
Some specific queries
about the provincial level structure are
listed below along with Prof. Hachhethu’s
responses:
Q. A new province has been created by
recognizing the Newar identity, so why
cannot a Tharu province be created in
Chitwan? - Birendra Mahato
A. The overall ethno-geographic of this
district does not allow including Chitwan in
Tharuwan. However, there are two ways to
address this issue. First, the southern part
of Chitwan where the Tharu are densely
concentrated can be included in Tharuwan
by virtue of ethno-geographic continuity.
Second, the definition of autonomous
regions developed by the CSRDSP can be
revised so that geographical area could be
provided to the Tharu in recognition of the
Unless the provinces are
economically viable, the
federal structure cannot
succeed.
- Punya Prasad Paudel
origin of the group in that place.
Q. People misunderstand the ethnic names
of the province. How to ensure the rights
of the minorities in the provinces must be
made clear. - Mukunda Dahal
A. Inclusive democracy
is the declared national
objective and this
can be established by
ensuring the rights
of the people who
are politically, socially
and
excluded.
economically
Q. Brahmin/Chhetris are the majority in
Narayani province and one of the VDCs in
Tamuwan province is almost exclusively
Brahmin/Chhetri. Why can that VDC not
be included in Narayani province? - Punya
Prasad Paudel
A. Most provinces are based on identity of
janjati, but not Narayani province. Narayani
province includes areas where over 50% of
the population is B/C, and the geography
is contiguous. Without the contiguous
geography, a B/C populated VDC cannot be
included in Narayani province.
Proposed Narayani Province Report 9

B. Day II (19 May 2010)
Day ll was spent in discussion on particular issues of federalism, such as
nation building and minority rights and fiscal federalism. Participants
also explored different issues through group exercises.
Presentation on Federalism: Nation
Building and Minority Rights
Prof. Khanal outlined that unlike the practice
of recognizing the culture and tradition of
the hills as a symbol of Nepal’s nationality,
federalism broadens the dimension of
nationality in Nepal. It ensures the collective
rights of all communities and recognizes
that the identities of people living in
Mountain, Hills and the Tarai all contribute to
strengthening the Nepali
nationality. The federal
system
multiple
recognizes
identities
and also ensures the
rights of women, Dalits
and children. It grants
prime rights to the
minority for two terms
of office in the position of executive head
of the provincial government. Further,
it has created a mechanism to establish
a special arrangement of autonomous
regions in the provinces for 22 different
ethnic communities and to recognize their
customary law in the state legal system. He
concluded that in making the provision for
affirmative action to ensure the rights of
the minority, the target list is vast enough
to guarantee their constitutional rights. The
provisions for women’s, Dalits and children’s
rights are included in the draft according to
the international standard.
More provinces are needed
in the Tarai to increase the
number of chief ministers
from the Tarai area.
-Anil Kumar Gair
In discussion following the presentation,
Jogmaya Prasain from Parbat raised the issues
of women, demanding 50% representation
of women in every sector of the state in order
to ensure women’s rights. Padam Gurung
from Chitwan stressed including the right to
self-determination in the list of fundamental
rights in the constitution. Mr. G.K Basyal,
Maoist representative from Parbat, stated,
“The political parties are not only raising
this issue of the right to
self-determination
to
collect votes, but from
a different prospective.”
Mr. Vijay Agrahari,
representative
Nepal
from
Sadbhawana
Party from Nawalparasi,
stated, “The state must
ensure the rights of women, Dalits and
the indigenous people of Madhesh while
ensuring the rights of the minority.”
Participants had many other questions
concerning minority rights, as given
below:
Q. A poor person can belong to any caste
or ethnicity. Why is there no provision to
address the issue of the poor?
A. Although there is provision for affirmative
action for groups who are economically
backward, it is not enough to address the
situation of poor people living in the far
10 Federalism Dialogues Series 6

western region of the country.
Q. The proposed Narayani province
includes many minority groups like
Tharu, Newar, Tamang etc. How are all
these groups ensured the prime right to
serve as executive head in the provincial
government for2 terms? - Birendra Mahato
A. The arrangement for prime right is not
properly defined in the draft constitution.
The prime right has been ensured to the
targeted ethnic community in a province
and in autonomous areas.. It provides the
right to be nominated by the party to be the
chief minister for two terms. For example,
the Limbu will have prime rights in the
Limbuwan province.
Q. In the draft constitution there is comma
between Indigenous and ethnic indigenous.
Who are the ethnic indigenous communities
as described in the constitution? Will the
federal constitution ensure the political
prime rights of indigenous communities?
-Padam Gurung
A. In the report of the Committee on State
Restructuring and Distribution of State
Power it is written as indigenous, ethnic
indigenous. According to an informal
source, CA members from the Khas region
argued that they should be put in the list for
reservations considering their status in the
human development index and recognized
as an indigenous group with a proper history
and civilization.
Q. Could the prime right be ensured for
women and Dalits?- Devi Thapa
A. The prime right is not be appropriate for
Dalits and women, but a special right would
be a beneficial provision.
Presentation on Fiscal Federalism
Prof Krishna Hachhethu outlined that the
proposed federal financial system provides
for centralized revenue collection. The draft
constitution has projected 88% revenue
concentrated in the center and allocates
only 12% to the local government. This
is similar to the practice of the Australian
federal system. However, following the
principle of equalization, the center has the
responsibility to support the less developed
provinces by collecting revenue from more
developed provinces and redistributing it
among the provinces. He stressed that in the
federal system, one province can be more
developed than another but the provinces
are interdependent with the center and
with other provinces, or with the local
government.
After the presentation, Mr. Punya Prasad
Paudel argued that the proposed system
is not a federal one because if a province is
not economically viable then the federal
structure would not be successful. The
economy and taxation policy is a major
organ of the federal system. Maya Adhikari,
a human rights activist from Parbat added,
“Formation of a fiscal commission including
related experts is necessary to develop
a proper fiscal system.” However, Padam
Gurung from Chitwan pointed out, “Without
a strong center there cannot be support for
underdeveloped provinces, but still there is
space to think about sharing of percentage
of the custom fees, excise duty and visa fees
between the center and the provinces.” Mr.
Vijay Agrahari, representative from Nepal
Proposed Narayani Province Report 11

Sadbhawana party from Nawalparasi,
stated, “Ensuring the rights of the people
of Madhesh is not a matter of policy but is
the desire of the Madheshi people. Unless
there is clear provision on the allocation of
revenue there will be many conflicts with the
taxation system in future.”
Q. Since the revenue collection is centralized
how will revenue be distributed in the
federal structure? -Maya Adhikari
A. The provision of a centralized revenue
system and decentralized expenditure is
appropriate in our context. As in Canada,
where all taxes are the responsibility of local
government except custom duty, we can
reallocate the share of the revenue from
VAT, organizational taxes, royalty of natural
resources. The allocation can also be shared.
Q. How can the state economically support
the underdeveloped provinces? - Punya
Prasad Paudel
A. The center can support underdeveloped
provinces with aid, so they can develop in
accordance with the developed provinces.
Group Work 1: Exploring the facts about
different facets of federalism in context
of Nepal
The participants were divided into five
groups to discuss issues related with
federalism. The topics of the group discussion
were the basis for structuring the provinces,
the division of power between center and
provinces, minority rights in the province,
local government and services, and interprovincial
relations.
Basis for structuring the provinces: The group
suggested two broad categories as the
basis for structuring the different provinces:
recognition of identity and capability. The
issues of identity cover ethnicity, language,
culture, geography, and the continuity of
history. Capability refers to the economy
and infrastructure of the provinces as well
as the availability of natural resources and
administrative accessibility.
However, there were some issues on which
all group members did not agree. Some
argued for nine provinces, with the borders
being Nepal’s major rivers. They felt people
should learn to live together, and this
division would provide balanced access to
natural resources. Likewise they thought
that the provinces should be named on the
basis of multiple identities. Some members
stressed the need to identify the minorities
within Narayani province and to ensure their
rights.
Division of power between center and
provinces The second group pointed out that
the principle of federalism is to decentralize
the power and authority but that the
suggested fiscal provision for a federal Nepal
does not do this as the source of revenue
is concentrated in the center, with 74% of
total revenue collected by the center. They
felt the draft was influenced by the unitary
system of government. The group suggested
allocating all responsibility for revenue
collection to the provincial government
except for foreign loans, grants and customs
duty. All other income should be allocated
to the province and local government, and
a decision made now about the percentage
share of these two levels.
12 Federalism Dialogues Series 6

The group noted that the practices of the
unitary system of administration could
influence the future development of the
provinces. Thus the center should create
balance and maintain impartiality in
addressing the issues of different provinces.
The inclusive and proportional distribution
of rights of the center, province and local
level should be ensured.
For convenience and accessibility the
services related to people’s basic needs
such as citizenship and passports, land
registration, health, education, security,
judiciary etc should be provided at the local
level.
The group felt the allocation of provinces is
not practical from the point of administration
and geography. They recommended
forming an expert commission to decide on
the borders and fiscal rights of the provinces,
to avoid any future conflicts. The federal
capital city should be in the middle of the 14
provinces, with the objective of developing
other cities of Nepal.
Minority rights in provinces: The third group
categorized minority rights into four types:
political rights, social rights, economic rights,
and linguistic and cultural rights.
Political rights: Make a special provision to
ensure the rights of political representation on
the basis of their population for all minorities,
and establish autonomous regions for the
minorities for their own administration.
Social rights: According to ILO 169 the state
should recognize the minorities’ traditional
occupations, trades and culture. To end
the discrimination of untouchability, the
practice of untouchability should be made
a crime against the state. Recognize the
right to health, education, employment and
shelter for the minority as their fundamental
right and prioritize the compulsory provision
of these rights.
Economic rights: Minority groups should
be provided with free access to vocational
training, small interest-free loans from the
state, and opportunities for employment
based on affirmative action, and reservation/
quota systems. Cooperative societies should
be established for the minority groups to
improve and empower them economically.
Linguistic and cultural rights: Education
in mother tongue and publish curriculum,
magazines and other informative materials
in the mother tongue. Provide free higher
education for minority groups. Develop
programs to protect and promote their
traditional religion, culture and practices.
Local government and services: The
fourth group proposed three units of local
government on the basis of population. A
municipality should have fifty thousand to
one lakh population, the sub-metropolitian
city should have one to three lakhs
population, and the metropolitan city should
have a population over three lakhs. The units
of government should have councils of 55,
65 and 75 members respectively.
The following services should be handled
by local government to be more accessible
to local people: distribution of citizenship
and passports, free higher secondary level
Proposed Narayani Province Report 13

education, payment of land tax, security
administration, basic infrastructure, basic
health, and local communications media.
Inter-provincial relations: Border relations
between provinces should be conflict-free,
and there should be easy road transportation
between different provinces. There should be
equal access to natural and water resources,
education, health, employment services, and
equal treatment by the security services.
Inter provincial relations for trade and
communication, export and import should
be equal. A good taxation system between
the provinces should be established. Ethnic
harmony should be maintained between the
provinces.
Detailed lists of the findings of the group
discussions are included in Annex IV.
DAY III (20 May 2010)
Day III was devoted to discussing and exploring facts about federalism,
particularly in the local context of Narayani province.
Contextual Analysis of Proposed
Narayani Province by local resource
person Mr. Bikash Lamsal
Mr. Lamsal presented the detailed
topography and demography of the
Narayani province, which is surrounded by
six provinces: Tamuwan, Tamsaling, Newa,
Mithila-Bhojpura-Koch Madhesh, Lumbini-
Awadh-Tharuwan, and Magarat, and also links
with the Indian border. The physical features
include middle hills, Mahabharat Chure
hills, Besi, and Tarai plain area. The province
includes 272 VDCs and six municipalities of
eleven districts: Chitwan, Dhading, Gorkha,
Kaski, Lamjung, Makwanpur, Nawalparasi,
Nuwakot, Parbat, Syangja and Tanahu. The
largest population group is hill Brahmins/
Chhetris along with other communities such
as Tharu, Madheshi, Gurung, Magar, Newar,
Dalit, Thakali and minority groups such as
Bhote, Kumal, Majhi.
Mr. Lamsal categorized the resources
of the province under the following
headings:
Water resources: The province includes
many large rivers — Trishuli, Aakhu, Budi
Gandaki, Marsyangdi, Modi, Kali Gandaki,
Daraudi— and many other small rivers,
and is a wealthy province regarding water
resources.
Religious places: Many sacred temples and
religious sites are found, including Tribeni,
Devghat (narayani temple), Rani ghat, Aadi
mohan, Seti beni (Salik ram Shila), Purti ghat,
Chiruwa Dhuga, Jaimuni ghat, Modi ghat,
Gupteshwor , Devisthan, Kalika, Damodar
Kunda etc.
Tourism: The province is an appropriate
location for rafting, sky diving, and cycling,
which can attract foreign tourists. Similarly,
Chadi kalika of Syangja, Nuwakot, Durbar
14 Federalism Dialogues Series 6

square of Bhure king in Kalingkot, Paiyukot,
Golyan Dham, Chisapani, Durbar chuli,
Dahare Lek of Aaruchaur, Panchase Lek, Mate
Bhume Hampal Lek etc. can be developed as
tourist destinations in the future.
Agricultural production: The province is
very fertile for all type of grains, vegetables,
fruits etc.
Development infrastructure: Roads link all
municipalities, VDCs and districts, and the
province is linked to the East-West Highway,
Prithvi Highway and Siddhartha Highway.
Educational infrastructure: The province
has many educational institutions for higher
studies like the Agricultural campus, Birendra
Multiple campus, Chitwan Medical college,
Parbat Multiple campus, Mukunde campus,
Syangja, Gupteshwor campus etc.
Overall, Narayani province has a high
potential, located in the central part of Nepal,
with considerable physical infrastructure
including markets, roads and meeting places.
Mr. Lamsal concluded that despite all the
possibilities for the development of Narayani
provinces, there is a need to maintain
harmony among the different ethnic,
linguistic, and cultural groups. He urged
support, cooperation and understanding to
establish Narayani as one of Nepal’s most
developed provinces in the future. This
presentation is included as Annex III.
Group work 2: Exploring different facets
of federalism in the context of Narayani
Province
The second round of group work focused
on the proposed Narayani province and
discussed the following issues: land and
population, political and administrative
structure, natural resources and economic
possibilities, practices of customary laws,
and the rights of minorities.
Discussing the proposed land and population
for Narayani province, the first group listed
a total of 218 VDCs, excluding 2 VDCs of
Tanahu and 38 VDCs of Parbat from the list
suggested by the thematic committee. They
recommended including Bhanumati and
Bhimat VDCs of Tanahu in Magarat, and all
the suggested VDCs of Parbat in Tamuwan
and Magarat provinces. Likewise, based on
the suggestion made in Tamuwan province
to include Nawalparasi in that province, the
participants of Narayani province suggested
not including any VDCs of Nawalparasi in
Narayani province.
Concerning the political and administrative
structure of Narayani province, the second
group suggested some revision on the
number of different units to be formed.
Against the suggested 191 gaon palika, the
group recommended reducing the number
of goan palika to develop them as towns.
Similarly, they added five autonomous
regions to the proposed ten, to recognize
groups of people who have been living in
these areas since ancient times with their
own languages. Likewise they recognized
the right to self-determination of the
Musahar, Bhote and Muslim communities
and proposed protective regions for them.
The third group presented a list of natural
resources and their economic possibilities for
the sustainability of the Narayani province.
Proposed Narayani Province Report 15

They listed water resources, land, forest,
minerals and tourism. The water resources
provide for the possibility of electricity
production and irrigation. The agricultural
land has potential for cash crops, commercial
livestock production and bee-keeping. The
forests contain varieties of wild animals
and birds, and natural herbs. Potentials
for tourism include natural tourism with
the national forests, religious tourism at
different temples in the province, such as
Manakamana and Devghat, social tourism,
educational tourism, and sports tourism.
Discussing the customary law practiced
by different ethnic groups of Narayani
province, the fourth group identified the
traditional systems of six different ethnic
groups: Tharu, Gurung, Tamang, Brahmin/
Chhetri, Chepang/Danuwar, and Limbu/
Kirat. They suggested that these customary
systems could address locally raised issues
such as quarrels over irrigation, animals
eating crops, and other simple cases.
However, considering the significance of the
new recognition of customary law by the
draft constitution, they recommend more
discussion on the indigenous customary
laws and their practice.
Rights of minorities: The fifth group
identified many different minority groups
in the province and suggested autonomous
and sub-autonomous regions for them.
To guarantee the minority rights, they
recommend guaranteeing the right to their
language, religion and culture, recognizing
their right to identity and existence, and
granting them the prime right to use the
natural resources of water, land and forest.
They advocate the provision of free access
to health and education, and access and
representation in the economic, social and
political sectors.
Detailed lists of the findings of the group
discussions are included in Annex IV.
Additional questions raised by
participants
During the Federalism Dialogue, participants
had the opportunity to ask questions of
the resource persons. Some of these have
already been incorporated into this report.
The rest are recorded here.
Q. How has the word Madhesh come into
existence in the place of Tarai? -Tikendra
Chaudhary
A. Analyzing Nepali civilization, it was
generally understood that there are
four ethnic groups in Nepal-hill B/C, hill
indigenous, Madheshi and Newar. Madheshi
refers to the community who live in the
plains area. In the official records since the
Rana regime, all the people living in the
plains are regarded as Madheshi. During the
Madhesh movement the word has come to
denote the Tarai as a whole.
Now the issue is that the Madhesh has been
said to include 20 districts of Nepal where the
population distirvution (excluding people of
hill origin) includes 59% Hindu castes, 25%
Tharu and Ranjbansi (Tarai Indigenous) and
15% Muslim. Therefore, considering the
socio-political equation, the development of
one single Madhesh province is not possible.
Q. The proportional representation
election system is not sufficient to ensure
proportional representation. What type
16 Federalism Dialogues Series 6

of election system could ensure the
representation of people as per their
population? -G.K.Basyal
A. As proposed by the Maoist Party, the MMC
(multi member constituency) with FPTP
(First Past the Post) and caste/ethnic based
proportional representation system could
ensure inclusive democracy in proportion to
population numbers, but it is an expensive
electoral system and the current election
commissioner is not ready to bear the cost.
Detailed discussion is needed to select an
appropriate election system.
Q. In naming the Tarai provinces, there was
partiality. Could we create more provinces
for the Tarai and increase the number of
Chief Ministers?- Anil Kumar Gaud
A. All provinces are not economically equal
and this is the right structure to balance the
political equation. The upper house is the
house of provinces and the lower house is
the house of people’ elected representatives.
Closing session
At the end of the workshop, participants
representing the political parties and civil
society expressed their thoughts about the
federalism dialogue. Mr. Vijay Agrahari from
Sadbhawana Party stated, “This workshop
has provided space to express the concerns
of the Madheshi people about their
confusing situation as citizens and the risks
involved in their life in the border area.” From
the CPN-UML, Mr. Bikash Lamsal from Parbat
remarked, “As the decision to establish
federalism in the country has already been
made, we need to discuss how to make
this structure successful.” He also added,
“This gathering has been fruitful for having
discussions among various groups of people
and promoting understanding and belief
among each other.”
Prof. Krishna Khanal summarized that
through an amendment the interim
constitution has already declared Nepal a
federal state. Now is the time to consider
how to successfully establish this system. He
said that unlike classical federalism, what is
proposed is a co-operative federalism with a
strong center in order to support the weaker
provinces of federal Nepal. Only the proper
redistribution of resources can support the
development of all the provinces equally
in the future. Concluding the three-day
workshop, Mr. Surendra Chaudhary, Grant
Manager, CSO/SPCBN, said that the workshop
was organized with the objective of holding
discussions among various representative
of the political parties and civil society to
support the constitution making process.
This purpose has been fulfilled and the
outcome of the workshop will be shared,
particularly with the concerned thematic CA
members.
Proposed Narayani Province Report 17

6. EVALUATION SUMMARY
Of the total of 56 participants, 45 completed the workshop evaluation
form. Analyzing the information reveals that 98% of the respondents
found the subject matter and content to be good or useful. They did feel
that the content should not be theoretical but based on local context.
The session should have included more information about minority
rights and the practices of federalism in the world to mitigate conflicts
and manage diversity. All of the respondents found the presentation
and facilitation, and the management good or satisfactory. 84% found
the selection of participants useful or good. All but one respondent felt
the workshops should be continued.
All assessments of the participants about the federalism workshop are presented in the table
below:
Evaluation of workshop by participants
Workshop subject matter and content*
Not useful % Useful % Good %
1 2 30 67 13 29
Presentation/ facilitation
Unsatisfactory % Satisfactory % Good %
0 0 28 62 17 38
Selection of participants*
Not useful % Useful % Good %
7 16 34 75 4 9
Management*
Unsatisfactory % Satisfactory % Good %
0 0 34 75 10 22
Need for continuation of workshop
Yes % No %
44 98 1 2
One participant did not answer this question.
18 Federalism Dialogues Series 6

7. RECOMMENDATIONS FROM PARTICIPANTS
The organizers should ensure that participants stay for the whole
session and participate actively. A code of conduct should be developed
for the workshop. The workshop should be longer, with more time
allocated for questions and answers, and priority given to the queries
of the participants. Participants should come from diverse geographical
areas, as well as from rural and undeveloped areas. Additional specific
recommendations follow.
• Issues discussed in the workshop
should be executed properly.
• Issues in relation to decentralized
federalism and the local context
should be discussed more.
• Issues discussed are very theoretical,
and should be based on the
participants’ aspirations.
• Issues of Madheshis should be
highlighted more.
• The fact that federalism is a means to
manage diversity, and not to convert
a nation into many pieces should be
established by the workshop.
• Discussion should be based on
federalism as a means of mitigating
conflict.
• Successful practices of federalism in
the world as well as failures should
be discussed more, and the reasons
analyzed.
• The contents of the report should be
tested locally.
• Discussion should be focused
on demarcation on the basis of
geography, not only on the basis of
ethnicity.
• Discussion should include
infrastructure development for
proper execution of federalism.
• Definition of minorities should be
provided to the participants and
discussion held regarding minorities’
rights.
• Presentation of the census of VDCs
in the Narayani province by the
presenter is needed.
• Political parties and other
organizations should be made aware
about different aspects of federalism.
• Participants should educate people
in their local areas about the issues
discussed in the workshop.
• More facilitators are needed, with at
least one woman facilitator.
• The participation of CA members in
the workshop would be good.
• Participants should be encouraged to
have more interaction and discussion.
• All participants should be given a
chance to put forward their opinions
and suggestions.
• Program should be continued.
Proposed Narayani Province Report 19

ANNEX
20 Federalism Dialogues Series 6

ANNEX I
Federalism Dialogue in Proposed “Narayani” Province
Program Agenda
DAY ONE: 18 May
08:30 – 09:00 Registration
09:00 – 09:30 Opening
SPCBN Representative,
UNDP
Objectives Highlights
Grants Manager or Program
Officer, UNDP
09:30 – 11:00 Federalism, an Introduction
to Nepal’s Federal Future
Professor Krishna Khanal,
T.U
11:00 – 11:30 Tea Break
11:30 – 13: 00 Discussion on Prof. Khanal’s
presentation (Federalism,
an introduction to Nepal’s
federal future)
13:00 – 14:00 Lunch
14:00 - 15:00 Federal Structures at the
Provincial Level Professor
Krishna Hachhethu, T.U.
15:00 – 15:30 Tea Break
15:30 – 17:00 Discussion on Prof.
Hachhethu’s presentation
(Federal structures at the
Provincial Level)
17:00-17:30 Film Screening: The
Challenges of Diversity-The
Federal Experience
DAY TWO: 19 May
08:00 – 0900 Breakfast
09:00 – 9:45 Federalism, Nation
Building and Minority
Rights
Khanal, T.U
9:45-10:30 Discussion
10:30-10:45 Tea break
Professor Krishna
10:45 – 11:30 Fiscal Federalism: Forms
and Authorities Prof.
Krishna Hachhethu
11:30-12:15 Discussion
12:15-12:30 Break into small groups for
12:30 – 13:30 Lunch
detailed discussion
• Review on the basis
of province formation
as proposed by
Committee on State
Restructuring and the
Distribution of State
Power
• Distribution of power
between province and
local government
• Minority rights in
provincial structure
• Local government /
autonomous region
and service provision
• Interprovincial relations
Proposed Narayani Province Report 21

13:30 – 15:00 Group work
Each small group will work to reach
agreement on their task.
15:00 – 15:30 Tea break
15:30 – 17:00 Presentation by each group followed by floor
discussion
DAY THREE: 20 May
08:00 – 0900 Breakfast
09:00 – 10:00 Contextual Analysis of Specific Federal State
Issues
Local resource person
10:00 – 10:45 Discussion
10:45-11:15 Tea Break
11:45-12:15 Small Group Discussions on Critical Local
Provincial Issues
• History and geography
• Political and administrative structure
• Natural Resources and economic
probabilities
• Judicial system and customary law
• Rights of minorities
12:45 – 13:45 Lunch
13:45-15:30 Small Group Presentations and Discussion
15:30-16:30 Planning for the Future: Next Steps
16:30-17:30 Plenary discussion with Professor Krishna
Khanal and Professor Krishna Hachhethu
17:30 Closing Remarks
UNDP SPCBN Representative
Representatives from Workshop
22 Federalism Dialogues Series 6

ANNEX II
LIST OF PARTICIPANTS
Sno. Name Sex Caste District Designation/ Organization Contact No.
President, Tharu Kalyankari
1 Tikendra Chaudhary M Tharu Chitwan
9845023978
Sabha
President, Madhesi NGO
2 Sunaina Dahit F Tharu Chitwan
9845107624
Federation
Madhesi
3 Kausalendra Mishra M
Chitwan MNF 9851108812
B
4 Sobha Chaudhary F Tharu Chitwan MNF 9808420110
5 Sushma Tamang F IN Chitwan NEFIN 9845218305
6 Laxmi Chaudhary F Tharu Chitwan Adinasi Janjati Sanjal 9845055942
7
Padam Bahadur
District President,Janamukti
Gurung
M IN Chitwan
9855058915
party
8 Mohan Syanbo M IN Chitwan District President,NTG 9845024040
9 Kailash Thakur M MC Nawaparashi MSDS parashi 9847023848
10 Mohan Syanbo M IN Chitwan District President,NTG 9845024040
11 Satrajit Yadav M MC Nawalparashi President, TMLP 9857028444
12 Vijay Agrahari M MC Nawalparashi Sadbhawana party 9847299665
13 Anil Gaud M MC Nawalparashi MJF Democratic 9847037896
14 Bijay Singh Lopchan M IN Nuwakot NTG 9841366094
15 Ghom Nath Mahato M Tharu Chitwan NEFIN 9845080515
16 Mukunda Dahal M BC Chitwan INSEC 9845048967
17 Chun Prasad Sharma M BC Syangja Consumer Forum 9846070724
18 Min Bahadur Lama M IN Nawalparashi Secretary, NEFIN 9847094141
19 Bikash Lamsal M Brahmin Parbat President, CPN UML 9857630061
Joga Maya Gurung
Chairperson, women
20
F Brahmin Parbat
9847641075
Prasai
federation of Nepal
Vice President, Indigenous
21 Member Lo M IN Makwanpur
9845288580
Coordination Council
22 Ambika Adhikari F Brahmin Dhading DCM,NC 9841554480
23 Khem Lohani M Brahmin Parbat DCM,UML 9851022117
24 Maya Adhikari F Brahmin Parbat Women Human Right Activist 9847625397
25 Bharat Bhatta M Brahimin Dhading
District President, Nepal
Student Association
9841587051
26 Sarmila Thapa Magar F IN Nuwakot NIWF-Nuwakot 9741016995
27 Bishnu Bahadur Rana M IN Parbat NEFIN 974630779
28 Januka Simkhada F Brahmni Tanahun UML 9841546995
29 Chet Bahadur Thapa M Chhetri Tanahun 9846059259
30
Tul Bahadur
Chochangi
M IN Nuwakot NEFIN/NMA 984725781
31 Anil Pun M IN NMA 974185416
32 Ashok Sharu Magar M IN Makwanpur NEFIN 9845031282
Proposed Narayani Province Report 23

Sno. Name Sex Caste District Designation/ Organization Contact No.
33 G.K. Basyal M Brahmin Parbat Maoist 9851110230
34 Min maya Thapa F IN Tanahun NMA 9846289524
35 Jit Bahadur Mahato M Tharu Chitwan 9845146273
36
Narendra kumar
lama
M IN Chitwan 9845026083
37 Birendra Mahato M Tharu Chitwan Tharuhat Sangharsa Samiti 9745007220
38 Balram Bardewa M MC Chitwan MNF 9845050872
39 Manju Adhikari F Brahmin Parbat Akhil Nepal Mahila Sangh 9847626270
40
Tara Bdr. Thapa
Magar
M IN Tanahun NMA 9846061910
41 Nar Bahadur Rai M IN Chitwan MNF 9807273218
42 Parbati Rana F IN Makwanpur UML 9845057306
43 Sarita Thapa Magar F IN Gorkha NMA 9846068658
44
Bishnu Bahadur
Thapa Magar
M IN Gorkha NMA 9846033718
45 Binita Ale Magar F IN Dhading N.M.S. Centre 9741185885
46 Punya Prasad Poudel M Brahmin Kaski UML 9856025775
47
Raghu nath
Bhandari
M Brahmin Kaski UML 9846021255
48 Devi Thapa F Chhetri Syangja Akhil Nepal Mahila Sangh 9846075551
49
Baikuntha Raj
Poudel
M Brahmin Chitwan NC 9845050570
50 Meg Maya Gurung F IN Parbat NC 9747607201
51 Indra Prasad Paudel M Brahmin Chitwan Rastriya Janamorcha 9845044251
52 Mohan Acharya M Brahmin Parbat Social Development Center 9851016883
53 Ananda Bhusal M Brahmin Parbat NC 9841450456
54 Laxmi Gautam F Brahmin Makwanpur WSDC 9745000978
55 Kumar Chaudhary M Tharu Chitwan Tharuhat Sangharsa Samiti 9845068242
56 Muna Bhusal F Brahmin Parbat
Rural and Environment
Development centre
9847625831
24 Federalism Dialogues Series 6

ANNEX III
Presentation from Local Resource person - Bikash Lamsal
Narayani Province:
Bikash Lamsal
Narayani province is located between six
provinces: Tamuwan, Tamsaling, Magarat,
Newa, Lumbini-Abadh-Tharuwan and
Mithila-Bhojpura-Koch-Madhesh. Located in
the center of the country, it has the potential
to be a leading province.
District
Dhading 35
Gorkha 31
Kaski 14
Lamjung 20
Makawanpur 4
Nawalparasi 16
Nuwakot 6
Parbat 38
Tanahu 33
Chitwan 37
Syangja 31
No. of VDCs
Total 272 (including the 7
Municipalities:
• Byas Municipality
municipalities listed below)
• Putali Bazar Municipality
• Waling Municipality
• Prithvinagar Municipality
• Bharatpur Municipality
• Ratnanagar Municipality
• Chitwan Municipality
Caste/Ethnicity
• Upper hill Brahmin caste
• Tharu
• Madheshi
• Gurung, Magar, Newar and other
ethnicities
• Dalit
• Thakali
• Minority ethnicities - Bote, Kumal,
Majhi
Features/Diversities
Geographical:
• Mid Hill
• Mahabharat Churia Hill
• Small flatlands in between foothills
• Tarai
Biodiversity:
• Mahabharat range, National Parks
• Rhinoceros, elephant, wild animals,
animal husbandry
Aquatic Diversity:
• Trishuli, Aakhu, Budhi Gandaki,
Marsyangdi, Modi, Kali Gandaki,
Daraundi,
• many small streams
Religious Places:
• Tribeni, Deughat (Narayani Temple),
Rani Ghat, Aadhimohan Seti Beni
• (Shalik Ram Stone), Purti Ghat,
Chiruwa Stone, Jai Muni Ghat, Modi
Beni, Gupteshwar, Devi Sthan, Kalika,
Beni, Damodar Kunda
Tourism Activities:
Proposed Narayani Province Report 25

• Abundant feasibility in rafting, skydiving,
cycling
• It will be a multi linguistic, multi
cultural and conflict free province.
Beautiful places for Tourists:
• Chandi Kalika in Syangja, Nuwakot,
Walingkot, Palace of Bhure King,
Paiyukot, Golyang Dham, Chisapani,
Durbar Chuli, Dahare Lek of Aaru
Chaur, Panchase Lek, Mate Bhume
Hampal Lek and many other places at
the altitude of sea level to mountain
level.
Historical Religious Places:
• Tribeni, Dev Ghat, Manakamana,
Maula Kalika
High potentiality in Agriculture:
• In terms of agriculture, Narayani
has very high potentiality in the
production of grains, coffee, sour
plants, orange etc.
Narayani Province:
• It is a province with a high potentiality,
located in the central part of Nepal,
with a lot of physical infrastructure,
including markets, roads and meeting
places etc.
Development Infrastructure:
• It is in the forefront compared to other
provinces regarding the availability of
development infrastructure. Graveled
roads have been built linking all
municipalities, VDCs and districts,
and it is also linked with East-West
Highway (Mahendra Highway), Prithvi
Highway and Siddhartha Highway.
Education Status:
• Agriculture Campus, Birendra Multiple
Campus, Chitwan Medical College,
Parbat Multiple Campus, Makunde
Campus, Syangja, Gupteshwar
Campus.
26 Federalism Dialogues Series 6

ANNEX IV
Group Work Outcomes
First group work outcome:
Group A: The basis of developing the
provinces
Recognition of Identity:
• Ethnicity/community
Linguistic
• Culture
• Geographic continuity
• Historical continuity
Capability:
• Economic interdependence and
capability
• Existence of infrastructure
development and potentiality
• Availability of natural resources
• Administrative accessibility
Suggestion: (disagreed points)
• Clear definition of minority and
addressed them accordingly
(Geographical, ethnical and minority)
• Provinces are not developed as per
the suggestion of the draft committee
(for tarai Madesh)
• Create 9 provinces considering the
big rivers as the border of the province
Because:
• Balance accessibility for the resources
and learning to live together
• Name of the provinces should be
based on multi-iedntity
Group B: Issues to be principally consider
between the Center and provinces
• Draft is influenced by the unitary
system of government.
• Allocation of provinces are
not practical from the point of
administration and geography
• Subjects related with the basic need
of the common people should be
allotted to the local government,
such as citizenship, land registration,
health, education, security, judiciary
etc.
• The federal capital city should be in
the middle of the 14 provinces, with
the objective of developing other
cities of Nepal.
• Center should be responsible only
for the foreign loan and grant and
custom duty. All other income should
be allocated to the province and local
government and decide now about
the % of share in these two level.
• The practices of the unitary system
of administration may influence the
development of the provinces in
future. Thus the center should create
balance and maintain impartiality
in addressing the issues of different
provinces.
• The % of allocation of the financial
rights between the provinces and
the local government should be
decided now. The current practices of
approval of the district development
committee President to release the
grant to the VDC should not continue
in the province later.
Proposed Narayani Province Report 27

• The proposed fiscal federal system
is centralized and imbalanced.
The source of revenue has been
concentrated 74% with the center
and for the local and provincial level
it is allocated 5-8% and grant is only
3%. Although there is provision of
establishing provincial and local
government the fiscal authority is
focused with the central government.
Thus it shows the past practice of
unitary system could to continue on
a larger scale.
• Ensure the inclusive and proportional
distribution of rights to center,
province and local level.
• Distribution of citizenship and
passport must be allocated for the
local level.
• Not to arise any conflict in future,
including expert a commission should
be formed to decide the border and
fiscal rights.
Group C: Minority rights in Provinces
Political Rights:
• Special provision to ensure the rights
of political accessibility on the basis of
their population for all minorities.
• For their own administrative unit,
establish special autonomous region
for the minority.
Social Rights:
• As per the ILO 169 the traditional
occupation, trade and culture of
minority should be recognized by the
state.
• To end the discrimination of
untouchability, make this a crime
against state to punish who practice
the untouchability.
• Recognize the right to health,
education, employment and shelter
for the minority as their fundamental
right and prioritize the compulsory
provision of these rights.
Economic Rights:
• Free accessibility of the minority for
the vocational training.
• To improve the economic status of
the minority, Grant small loan without
interest by the state.
• On the basis of affirmative action
provide opportunity to the capable
minority candidate for employment.
• Compulsory arrangement of
reservation/quota system for
employment to the minority in the
government, Non-government,
private business houses.
• To improve and empower
economically establish cooperative
societies for the minority.
Linguistic and cultural Rights:
• Right to education in mother tongue.
• Arrangement of free higher education
for the minority.
• Publish curriculum, magazines and
other informative materials in the
mother tongue of the minority by the
state.
• Develop programs to protect and
promote the traditional culture and
practices of the minority.
• State economic support to promote
the religion of the minority.
Group D: Local government and its
service
Suggestions:
• On the basis of 15 to 20 thousand
population 15 member’s gaon palika
will be formed.
• Direct election for the president
and vice-president, nominated- 2,
11 member on the basis of inclusive
proportionately and 45 on the basis
of inclusive proportionately - total 60
members.
28 Federalism Dialogues Series 6

Municipality/Sub-metropoltian/ Meropolitian
Sl.no Organization Population Direct Inclusive Nominate Council
1 Municipality 50,000 to 2 16 3 55
1,00000
2. Sub-metro 1,000000 to
3,000000 2 19 4 65
3 Metropolitan more than
3,000000 2 22 5 75
Note: 1-21 members, 2- 25 members, 3-29 members.
Services provided by the local government:
• Distribution of citizenship
• Distribution of passport
• Free education up to higher
secondary level.
• Security administration
• Land tax
• Communication (FM, Television,
publication of newspaper)
• Basic infrastructure for development
• Basic health
Group E: Inter-provincial relations
• Conflict-less inter-provincial border
relation
• Environment with easy road
transportation between different
provinces.
• Equal access to use the natural
resources.
• Equal and easy access for education,
health, employment services.
• Equal treatment with the security
services
• Equal inter provincial relation with
trade and communication
• Equal provision for all provinces with
the export and import of product.
• Equal right to utilize the water
resources
• Good taxation system between the
provinces
Ethnic harmony between the provinces.
Proposed Narayani Province Report 29

Second group work outcome:
Group A: Land and population in relation to Narayani Province
District Land Population
Chitwan VDCs-36 and Municipalities- 2 Indigenous- 47%, Dalit- 8%, Brahmin-29%
Dhading
Nuwakot
VDCs-25 and including more VDCs -3
Basheri, Budhayoung and Pulkharka
from Tamuwan
VDCs-6 and Municipality-0
Majority of Brahmin, Chhetri, Chepang,
Giri, Puri, Rai, Dera, Kumal, Bhujel, Magar,
Demai, Kami, Gaine, Limbu, Muslim,
Tamang, Gurung, Newar, Thakuri
11 Indigenous including Brahmin, Chhetri,
Dalits and Muslim
Syangja VDCs 32 and Municipality -2
5 Indigenous including Brahmin, Chhetri
and Dalits.
Kaski
Tanahu
Nawal Parasi
Parbat
VDCs- 14 and Municipality-0 and
need to include Pokhara sub
municipality and some VDCs like
Balam, Kahu, Hemja of Lekhnath
municipality
VDCs-35 and Municipality 1 include
Bhanumati and Bhimat in Magarat
province
VDCs-17 and Municipality-0 exclude
all VDCs from Narayani Province
VDCs 38 Exclude all VDCs from
Narayani and include in Tamuwan
and Magarat provinces.
Majority of Indigenous, Brahmin, Chhetri
and Dalits
14 Indigenous, Brahmin, Chhetri but
majority of Magar around 80%
Majority of Tharu including migrated
Brahmin, Chhetri, dalit and other
indigenous
Brahmin, Chhetri, Magar, Gurung, Dalits,
Thakuri, Newar
Makwanpur VDCs-4
Gorkha VDCs 32
Lamjung VDCS -19
30 Federalism Dialogues Series 6

Group B: Political and administrative structure of Narayani Province
Unit Proposed Revised Reason for revision
Goan Palika 191 60
Municipality 6
Sub-metropolitan 0
5000-15000 population and
geographic structure and
promote to develop as town
50,000-20,0000 population and
geographic infrastructure of road,
communication and electricity.
200000-500000 population and
physical infrastructure
Metropolitan 0
15 for the group
Although developed considering
Autonomous
region
10
of Jhagad,Dhimal,
Chepang, Dura, Kumal,
Danuaar,Majhi, Baram,
the ethnic densities but need
to consider the group of people
living since ancient time and the
Chhantyal, Sunuwar
language.
Protective region 0
3 for Musahar, Boote,
Muslim
For the right to self determination
of extinct community
Special region 0 Required
Need to decide after the research
study.
Group C: Natural resources and the
economic possibilities
Natural resources:
• Sapta gandaki and its supporting
rivers, under groundrivers, electricity,
irrigation.
Land:
• Agriculture-Cash crops, fruits farming,
commercial production of livestock
and birds, fishery, bee keeping
Forest:
• Ushna Pradesh to Konedheri Pradesh,
varieties of wild animals and birds,
natural herbs etc
Minerals:
• Chalk mines of Dhadhing, Chitwan
and Tanahu, Kerosene of Chitwan
national forest, Bronze and Iron of
Parbat and Tanahu, Stone.
Tourism:
• Natural tourism with national forest,
Religion tourism with Devghat, Fewa
lake and Mankamana temple, social
tourism, educational tourism, sports
tourism.
Proposed Narayani Province Report 31

Group D: Customary laws in Narayani province
Ethnic group Judicial system Chief
Thaur Goan Kachahari Mukhiya
Gurung
Naal Sabha
Tamang Sabha Mukhiya/Michuyar
Brahmin/Chhetri Pancha Bhaladmi Mukhiya
Chepang/Danuwar Kachahari/Bhela Pramukh
Limbu/Kirat Dali/Thumse Bhaladmi
The activity of the judicial system:
Quarrel with the problem with irrigation
of field
Animal (If animals eat the food grains in
the field)
Solve simple cases
Give and take issues with the lands
Solve the cases with the border of land
field
Catch the thief and make decision for the
compensation
Make to repay the goods and services
Group E: Rights for the minorities in the
province
Identification of Minority:
Tharu, Chepang, Derai, Bote,Bhujel,
Limbu, Baram, Yoothmoo, Thakali,
Magar, Gurung, Kirat (Rai), Newar,
Tamang, Kumal, Dura, Majhi,
Gandharva, Muslim, Kusunda,
Danuwar
Ethnic group with the Autonomous
region:
Chepang, Dura, Baram, Rai (Yakha)
Kumal,
Yolmoo (Helmo)
Danuwar, Majhi, Thakali,
Sub-autonomous region:
Tharu, Derai, Limbu, Magar, Gurung,
Tamang, Bote, Muslim, Gandharva,
Kusunda
Right for the Minority:
Arrangement of sub autonomous region
Guarantee the right for language, religion
and culture
Right to identity and existence
Prime right to use natural resources
(Water, Land and Forest)
Provision of free access to health and
education
Special right in ever sector
Provision of access and representation
in the economic, social and political
sector.
32 Federalism Dialogues Series 6

2
3
1
9
8
4
5
ANNEX V
Legend
Streams
International Boundary
Proposed Federal Unit Boundary Built up
!. Proposed Federal Unit Capital
Cultivation
Forest
&- District Headquarters
Orchard
"
Buildings
Grass
Airports
Bush
District Boundary
o
Sand
Designated Area
Glacier
Mustang
Highway
Barren Land
Location Map
11
12
14
6 7
13
10
Proposed Federal Unit Boundary 5. Limbuwan
7.Magrat
Proposed Federal Units
9. Narayani
1. Jadan
10. Newa
2. Karnali
11.Sherpa
3. Khaptad
12.Sunkoshi
4. Kirat
13.Tamsaling
6. Lumbini -Awadh-Tharuwan
14.Tamuwan
8. Mithila-Bhojpura-Koch-Madhesh
Map data source(s):
Federal units- Constituent Assembly Committee on State Restructuring and
Distribution of State Power; Population data- CBS
Disclaimers:
The boundaries and names shown and the designations used on this map do
not imply official endorsement or acceptance by the United Nations. UNOCHA
and UNDP/CCD provide this map as a basis for discussion among CA
members and the public and can not take any responsibility for its
correctness.
CCD52
Myagdi
ANNAPURNA CONSERVATION AREA
Beni
Kaski
Baglung
Kusma
Pokhara
Baglung
Parbat
Syangja
Gulmi
Syangja
Tanahu
Tansen
Palpa
Nawalparasi
Rupandehi
Parasi
Chame
Manang
Damauli
Tamuwan
Lamjung
Besishahar
Gorkha
Bharatpur
Chitawan
CHITAWAN NATIONAL PARK
MANASLU CONSERVATIOM AREA
Gorkha
Dhading
Dhadingbesi
Narayani
Makwanpur
PARSA WILDLIFE RESERVE
Parsa
Rasuwa
LANGTANG NATIONAL PARK
Tamsaling
Bidur
Nuwakot
RANIBAN
Kathmandu
Newa
Lalitpur
Lalitpur
Hetauda
Bara
Rautahat
Feeder Road
River Water
District Road
Snow
Other Road
Lake
Main Trail
Predominance by Caste/Ethnicity - Narayani Federal Unit
27%
13%
10%
8%
7%
6%
5% 5% 5%
3% 3% 2% 2% 1% 1% 1%
Brahman-Hill
Chhetri
Magar
Gurung
Newar
Tamang
Kami
Tharu
Sarki
Damai/Dholi
Chepang (Praja)
Kumal
Gharti/Bhujel
Thakuri
Sanyasi
Others
Hill Brahman/Chhetri (HBC)
Narayani
Madhesi/Terai Brahman/Chhetri (MTBC)
0% 5% 1% 0.4%
Proposed Federal Unit : Narayani
A Reference Map
Disadvantaged Other Madhesi/Terai (DOMT)
30%
Non-Disadvantaged Other Madhesi/Terai (NDOMT)
10%
25%
Hill Dalits (HD)
Madhesi/Terai Dalits (MTD)
20%
43%
15%
10%
5%
0%
New ar (N)
Disadvantaged Hill Janajati (DHJ)
21%
Non-Disadvantaged Hill Janajati (NDHJ)
Disadvantaged Terai Janajati (DTJ)
Non-Disadvantaged Terai Janajati (NDTJ)
7%
0.2%
1%
11% 1%
Muslims (M)
Others (O)
0.4%
Proposed Narayani Province Report 33

34 Federalism Dialogues Series 6

Proposed Narayani Province Report 35

Centre for Constitutional Dialogue (CCD)
3rd & 4th floor, Alfa Beta Complex, Buddhanagar, Kathmandu
Telephone 977-1- 4785466 / 4785486 / 4785998
E-mail: info@ccd.org.np
Website: 36 www.ccd.org.np
Federalism Dialogues Series 6