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Constitution Making for Nepal Chairperson: Hon’Ble Bhoj Raj Pokhrel, Chief Election Commissioner Speakers: Mr

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Constitution Making for Nepal Chairperson: Hon’Ble Bhoj Raj Pokhrel, Chief Election Commissioner Speakers: Mr CONSTITUTION CONSTITUTION MAKING in NEPAL MAKING UNDP NEPAL UN House, Pulchowk G.P.O Box 107 Kathmandu, Nepal in Tel: + (977-1) 5523200 Fax: + (977-1) 5523991, 5523986 NEPAL www.undp.org.np Report of a Conference organized by the Constitution Advisory Support Unit, UNDP 3 - 4 March 2007, Kathmandu, Nepal KATHMANDU SEPTEMBER 2007 KATHMANDU CONSTITUTION MAKING in NEPAL Report of a Conference Organized by the Constitution Advisory Support Unit, UNDP 3 - 4 March 2007 Kathmandu, Nepal KATHMANDU, OCTOBER 2007 About the cover picture: this picture was taken on a CASU visit to a potters' village in the Terai. The discussion was about the Constitution. As Yash Ghai said during the Conference “Making a constitution includes not just what happens at the Constituent Assembly, but all the meetings around the country, including in the villages, where people discuss what sort of constitution they want”. © United Nations Development Programme (UNDP) 2007 UN House, Pulchowk G.P.O Box 107, Kathmandu, Nepal Tel: + (977-1) 5523200 Fax: + (977-1) 5523991, 5523986 www.undp.org.np DESIGNED AND PROCESSED BY PowerCommunications Printed in Nepal Contents Foreword v Introduction vi CASU vi Acknowledgements vii SUMMARY: MAJOR POINTS OF THE DELIBERATIONS OF THE CONFERENCE The role of constitutions and constitution making in civil conflicts 1 Hallmarks of a good constitution making process 1 Interim arrangements 2 1990 Constitution 2 Issues in constitution making 3 Bodies to make the constitution 3 Fundamental principles 4 Implementation of the new constitution 5 The approach and contents of the new constitution 5 REPORT OF THE CONFERENCE I. COMPARATIVE EXPERIENCE: CONSTITUTION MAKING IN POST-CONFLICT SOCIETIES 8 II. REFLECTIONS ON THE 1990 CONSTITUTION 12 III. ISSUES IN CONSTITUTION MAKING IN NEPAL 15 The Constituent Assembly 15 A new Nepal 15 2007 is not 1990 16 Inclusion, identity and participation 17 Identity 17 Inclusion and participation 18 Madheshi issues 21 The electoral system for the Constituent Assembly 21 Democratization 22 Social justice 22 Foreign involvement 23 Implementation 23 CONSTITUTION MAKING IN NEPAL IV. INSTITUTIONS AND PROCESSES ON THE WAY TO A NEW CONSTITUTION 24 A Constitution Commission 24 Interim Constitution 25 Political parties 26 Leaders’ perspectives 26 Other views 27 Media and constitution making 28 The role and functioning of the Constituent Assembly 28 Rules of procedure 29 Experts 30 Public participation 30 Reasonable speed 31 Decision making 31 Record keeping 31 Principles 31 V. SUBSTANTIVE ISSUES 32 Monarchy 32 Federalism 32 Economic implications 33 APPENDICES APPENDIX 1: BACKGROUND PAPER PREPARED BY YASH GHAI FOR THE CONFERENCE 34 APPENDIX 2 PAPER BY SURYA NATH UPADHYAYA ON MAKING OF THE 1990 CONSTITUTION 45 APPENDIX 3 PROVISIONS OF THE INTERIM CONSTITUTION ON THE CA 49 APPENDIX 4 LIST OF PARTICIPANTS 56 APPENDIX 5 OUTLINE OF CONFERENCE PROGRAMME 58 iv FOREWORD Foreword t is my pleasure to present the report of the first Surya Dhungel has been offering technical UNDP National Conference on “Constitution knowledge and often practical advice for a diverse IMaking in Nepal”. The Conference, which was group of people across the country. This conference held in March 2007, was the first of a series of five report is one result of such efforts, and I am certain national conferences organized by UNDP Nepal as that it will be of practical use to many readers. part of our support to various partners who play key roles in Nepal’s constitution making process. The Throughout the conference series, a particular other four conferences cover the most important emphasis has been made to ensure Nepali substantive issues that will need to be dealt with in a experiences, views and opinions are shared and new constitution of Nepal, such as restructuring of discussed thoroughly by engaging many national the state and federalism, diversity, human rights and experts on various topics, while international social inclusion, justice system, and systems of experts bring in the most relevant experiences from government. The major objective of the conference abroad to enrich the discussions. This was series is to assist in the stated objective of the Interim regarded as extremely important given the fact that Constitution – that the people of Nepal should make the responsibility of making a new constitution of their own constitution through the Constituent Nepal lies with Nepali citizens, and that the process Assembly. will have to be built on the historical evolution of this country. Since November 2006, UNDP Nepal has been providing assistance for the constitution building It is certainly a challenging task to draw up a new process in collaboration with the wider constitution through a democratic, participatory international community. The main focus of our process, especially for a country which is just emerging support has been twofold – providing expert advice from a decade of conflict. However, it is a prerequisite to key groups of stakeholders so that they are well to consolidating peace in the country, and it is the hope prepared to participate in making a new of Nepali citizens. I would like to take this opportunity Constitution, and increasing public knowledge of to reconfirm that UNDP is committed to supporting the constitution building process. A core team of the peace process in Nepal, and I believe that this report experts led by Professor Yash Pal Ghai and Dr. is a symbol of our commitment. Matthew Kahane UNDP Resident Representative, Nepal v CONSTITUTION MAKING IN NEPAL Introduction s part of UNDP's commitment to participants, drawn from a wide spectrum of supporting Nepal's process of making a individuals including, politicians, lawyers, and Anew constitution, the Constitution academics, prominent members of civil society, the Advisory Support Unit (CASU) organized this media and some people from international conference on constitution making on 3rd and 4th organizations attended (for a complete list of March 2007 in Kathmandu. This was part of a series participants, indicating chairs and speakers please of national constitutional conferences aiming to see Appendix 4). bring together persons and organisations from all over the country to discuss specific issues of The main focus of the conference was on making a constitution making and options for the new new constitution, rather than on the substantive constitution. Some of these have taken place after issues that would have to be decided when making different groups have travelled throughout the that constitution (though inevitably some issues country, given information about the process and related to substance were raised). A general the issues that will be determined by the discussion of the issues involved in making a Constituent Assembly. The aim is to promote constitution took place during two sessions of the discussions that will lead to an effective conference. One session was devoted to a constitution making process that will reflect, both consideration of the 1990 Constitution, and to what in the process of making the new constitution and lessons could be derived from that experience – both in its substance, the principles and aspirations of the process of making that constitution and from the the jana andolan of 2006. These conferences have constitution itself and from the way it was, or was been designed to ensure that different sectors of not, implemented. Another session was devoted to society meet and share ideas. Similarly, they the presentation by leaders of political parties of their should help in the work of the Constituent perspectives on the process of making a new Assembly by raising awareness, by developing an constitution. And one session concerned specifically agenda and raising issues about the new the working of the Constituent Assembly. constitution, exploring in some detail the implications of different approaches that might be This report is a summary of the observations and taken and different institutions that might be suggestions made at the conference rather than a adopted in a new constitution. The conferences consecutive account of the event. There was a good have built on the work of civil society, and hopefully deal of overlap between remarks made by various reflect the views that people have been expressing. speakers, and participants from the floor. An attempt It is CASU's view that such events are themselves has been made to remove overlap and repetition, part of constitution building, because they generate while giving some sense of who made various ideas, and are part of the whole process of remarks, and the importance given to a particular developing a constitution-consciousness that will issue by participants. be essential for the success of the new constitution. We also hope that this report will also serve as a record of what people were thinking about and CASU discussing at the time the conference was held. CASU is a small Unit within the UNDP, Nepal. It is committed to helping to achieve the aims of the Peace This conference took place at the Radisson Hotel in Agreements and the Interim Constitution – “that the Kathmandu. During the two days, over 100 people of Nepal make their own Constitution vi INTRODUCTION through a Constituent Assembly”. The Unit constitution and a key member of the negotiating responds to requests for information from team of the African National Congress. He helped Government bodies, political parties and civil to negotiate the Sudan peace and constitutional society. As well as organising conferences and agreement between the central government and workshops, its members participate in events Southern Sudan. He was head of the UN team of legal organised by others. The Unit has assisted in the advisors to the Iraqi parliament on the drafting of the publication of materials designed to inform the Iraq’s constitution. In addition to other countries public about constitutions and constitution making. where he has provided advice he has visited Nepal And it has prepared papers, short and long, on on several occasions as part of an IDEA team many issues relating to the Constituent Assembly, and constitution making generally.
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