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U Ljogrim11c DATA Siiel-7 Tff.AA4R);KASIRA'h(9 '*It 2 O.TITLE APO 5U3trtle (40) Local Institutions and Peoplet's Partii1patioqn in Rurit Puhlic Worka in Nepal U lJOGRIM11C DATA SiIEL-7 tfF.AA4R);KASIRA'H(9 '*it 2 O.TITLE APO 5U3TrTLE (40) Local institutions and peoplet's partii1patioQn in rurit puhlic worka in Nepal 4, tERSONAL AUMlORS (100) Prwian, P. P. O.IQOOOIATh AVTHOIL 011 Cornell Univ. Ctr. for :nt. Studies. R~ural :*vvc01jqnen StIudies ,uc~VmW.Tr IE1L ja) ?.',IBER Of PAGE3 l0) ;*J I1')NCL(AYNUATIO(00) 0)-ptcial ser. on riral local ~n~tii 4) *~t5CII~k~v2~ I. ?1(#)) W Uf1NIMN 1%01 i IS4aIAy d y:O::on olb i-b; .­ 16 r v. P Y- ' V I-"' T- t,,i jc o I too Iv .m*, ._L UNIVERSITY RURAL DEVELOPMENT COMMITTEE Special Series on Rural Local Organization LOCAL INSTITUTIONS AND PEOPLE'S PARTICIPATION IN RURAL PUBLIC WORKS IN NEPAL Prachanda P. Pradhan RLO No. 4 SPECIAL SERIVA ON RURAL LOCAL OOVERJO0I I THEZ=AIVEIMI OF RQUIYItNSTTUTIONAL. API IOACHU TOl RURAL DYLMl' 1V IN AIQLADEIS; Harry W. Blair (138 pp.) $3.50 2 PEODPLE'S C014"ES AND RURAL. DEYLOWNT INI CHINA; Benedit 1 LOCAL INSTIfTUIOI) AND EGYPTIAN RURAL DEVEWOPRIT; J. P. Hayfild (W.2 pp.) $3,50 I. PANCHAYATI WA.AND RURAL DEVIflNIXT IN AIIDHRA PRDWIH, lNJ)IAI (. Rms Reddy (98_pp.) *3.50,1 5 TU1D".ANICS OF INSTITUTIONAL CHIANGE AND RURAL DELflgEff IN PUNJAD, INDIA; S. 8. Johl and Nohinder G. Wd4har (171 pp.) $4,50 7 RURAL LOCAL GOVEZPWNT AID AORICULTURAL D I.VEOPNT IN JAVA, !xONESA Gary 0. Han (86 pp.) V2.50 8 LOCAL fl$ONS AIDAU1T1" RURAL DEWVLOPIM0Wu IN JAPAN; Ronald Aqua (110 pp.) $3.50 9 LOCAL Zf1TION0 AND RURAL DIEVELOP1fT IN )ALAYSIA; Stephen Chee (112 pp.) $3,0 10 BASIC "URAL IEMOCRACIES AND RURAL OEVEI.OPXW IN PAKISTAII; Norman K. Pleholson ewl4 Dilavar All Khan (106 pp.) $3.50 12 LOCAL WMLYRtIItNU AND RURAL DEVELO% ZN THE PHILIPPIMIYJ; Santflao S. Smlua. Letvina Carino and Arturo Pacho (118 pp.) $3.50 13 tXAL 11r.2TlUT10 A.ND RURAL DELOPNM IN I(YJM KOREA; Ronald A1% (82 pp.) $3.50 I L CAL IOUI3WI? AND RURAL DEYELOPI4EN IN SRI LANKAt John 2. Backton (78 pp.) $2.50 1 RURAL lOCAL SVMANCE AND AGRICULTURAL DEVEILOPNT IN TAIWAN; Benedict Stavls (132 pp.) Sh.50 16 LOCAL OOVEM ACi AID RMRAL DWIEIOPKE IN THAILAND; Marcus Ingle (106 pp.) 13.50 17 LOCAL. OVEUINE AND AGNICULTVItAL DIYKI OWI.J IN TUUCRYt Douglas E. Ashrord (1121 pp.) $3.50 18 LOCAL WYGOREI1KN AND?RURAL DEVEOPIWT IN YUOGtLAVIA; Zdravko 9l1nar (136 pp.) $3.50 19 LOCAL OPGA)ZI.ATION FOR RURAL DELWI1K s, ANALYSIS OP AIAN EXPERIICEI NormnT. Ur*hoff and Hilton J. NEmn (117 pp.) 11.50 EPECIAL MRI21 (V rMIAL LOCALOKAlIMAION I PEASANIS, OJFICIAO AiD PARTICIPAIOU IN RURAL TA1NZANZAS IXJ'PEIIICE VITH YIIAIZAbIO MD DRCISTIIALIZATION; Lou ise Fartanan (136 pp.) **s.OO 2 RURAL OA IAZATIOt IN SOUTH INDIAt T E DYNAMIC O AlBOWN AnD ?TIIAJI UNIONS AND FARF M ASOCIAIOEP IN KIERALA AND TANI. XADUI K. C, Alexander (95 p. ) *3.50 3 IlCAL (I OAN!ZATIO AN INTEGRATEZD RURAL DEVELOPMiEV IN JAXAICA; Arthur Ooldsmih and Harvey blustain (140 pp.) 4 $URAL LOCAL INSTZIVZTION AND PROPLE'S PARTICIPATION IN RURAL PUBLIC OPKS IN NEPAL; Prauchmnda P. Pradhan (103 pp.) MIBLITOCAPY 09lI9 I PAJRTICIPATION AT THE LOCAL LEVYLt A 'IJOIO BIBLIOGRAPHY John W. Cohen, Oladya A. Culagovki, Noman ?. Uphotf, Dia L. Vo .(125 pp.) *...50 2 TILLUI O?7II1 SOIL AND KEZPM T OP 111 HXUMIIl A BIBLIO- GOAPHIC WEUIDE VOI#WOAND MELOPIrIT. Louise rort.nnn +"(51 r - $3.0 4+++r+ +++q+ +: d+ LOCAL INSTITUTIONS AND PEOPLE'S PARTICIPATION IN RURAL PUBLIC WORKS IN NEPAL Prachanda P. Pradhan Centre for Economic Development and Administration Tribhuvan University Kathmandu, Nepal Published by the Rural Development Committee, Center for International Studies, 170 Uris Hall, Cornell University, Ithaca, New York 14853. April 1980. $3.50 ACKNOWLEDGMENTS This paper was written while a visiting professor with the Rural Development Committee, Center for International Studies, Cornell Univer­ 7 sity, September 19 9-January 1980. This appointment was made possible by a senior research grant from the Fulbright program and by sabbatical support from Tribhuvan University. While at Cornell, T received logistic support from the RDC's Rural Development Participation Project, funded under a cooperative agreement between the RDC and USAID's Office of Rural D)evelopment. The paper went through several drafts and received the usual 'ditorial ministrations of the Project's director, Norman Uphoff. His prior experience in Nepal while a visiting professor at my institution, the Centre for Economic Development and Administration, surely helped the refining of the paper. Special thanks to Brigid Hlolleran Smith for bringing the manuscript into rea'Iable form. Information for the first case study was collected by the duthor in Banglung District while interviewing people connected with the Suspended Bridge Construction Project in October, 1977. lie expresses his gratitude to the East Consulting Engineers, Kathmandu, for letting him use informa­ tion collected during their study for USAID/Kathmandu. See Train Suspension Bridge Study, Kathmaridu: East Consulting Engineers, 1978. Information for the second study was collected in the ficld by the author throug.i inter­ views conducted with people involved in the Illam-Charali trunk road. Their coo|peration is much appreciated and I give my thanks to them. Data for the third case came from the author's field study doing research on "Impact of the NDS Program ir. Nepal," financed by Trihhuvan University and the International Deveco,'ment Research Centre, Carada, 1977-78. My appreciation goes to them for making thi3 rest-arch po;sible. Drawing together These stuc.es and drawing out their implications for rural develop­ ment in Nepal would have taken sevtral more years sLill but for the support of the Fulbright Program and the Cen er for International Studies, and its director, Milton J. Esman. Prachanda P. Pradhan TABLE OF CONTENTS page LIST OF TABLES............. ........................... .iv I RURAL LOCAL INSTITUTIONS IN PERSPECTIVE ..... .......... 1 II BANGLUNG SUSPENDED BRIDGE CONSTRUCTION: AN OUTCOME OF PEOPLE'S PARTICIPATION....... ................... 29 :II THE ILLAM-CIIARALI TRUNK ROAD CONSTRU,"TION: A STUDY ON THE LEVEL OF PEOPLE'S PARTICIPATION AND COVERNMENT INTERVENTION ....... ................. 45 IV THE NATIONAL DEVELOPMENT SERVICE: AN APPROACH TO RURAL INFRASTRUCTURE DEVELOPMENT THROUGH LOCAL RESOURCE MOBILIZATION ...... .............. .63 V OVERVIEW AND CONCLUSIONS ....... ................ 81 APPENDIX A: RESOURCES MOBTLIZED FOR VARIOUS PROGRAMS BY NDS PARTICIPANTS ........ .................. 96 APPENDIX B: CONSTRUCTION AND REPAIR ACTIVITIES ....... .98 BIBLIOGRAPHY . .......................... 100 LIST OF TABLES Table Page I VILLAGERS' AND LOCAL LEADERS' PREFERENCE FOR THE MOST NEEDED DEVELOPMENT WORKS ........ ................. 27 II CAPITAL INVESTMENT COST AND CAPI'kL COST, 1976.......... .58 III CLASSIFICATION OF RESOURCE MOBILIZATION .... ........... .72 IV POSITIVE ATTITUDES OF V'LLAGERS TOWARDS NDS PARTICIPANTS: REASONS FOR FAVORING CONTINUATION OF THE PROGRAM.........75 V PER STUDENT COST IN NDS PROGRAM ..... ............... .76 VI RESOURCES MOBILIZED THROUGH NDS VOLUNTEERS. 77 iv CHAPTER I RURAL LOCAL INSTITUTIONS IN PERSPECTIVE Among several kinds of people's participation in rural development, this paper will focus on the dynamics of people's participation in public works activities, like constructing feeder roads and suspended bridges and mobilizing local resources for public works activities generally within villages. The study will deal first with the growth of rural local insti­ tutions in Nepal and with their role and scope in providing set vices to communities. We begin with a summary overview, elaborated later in this chapter. Nepal's modern history begins in 1769 when Nepal emerged as a single country under Prithivi Narayan Saha. The Kingdom of Gorkha, a small state in western Nepal had expanded through military expeditions to the east and west of Gorkha. As ruler, Prithivi Narayan Saha conquered Kathmandu valley in 1769 and established Kathmandu as the capital of Nepal. There­ after, he ruled a unified Nepal from Kathmandu instead of from Gorkha, the ancLstral home of Saha kings. In the course of Gorkha's territorial expan­ sion, dozens of petty principalities were brought under the sway of the Saha kings. Unified Nepal was described by Prithivi Narayan Saha as a "garden of different flowers," denoting its composition from many ethnic groups with different cultural activities. Moreover, economic conditions varied markedly from one geographical region to another. The administration of unified Nepal was an entirely new challenge to the Gorkha rulers. The trained manpower required for this new venture was -2­ just not available. Physical control of expanded territory continued through army officers deputed by the Saha kings. Each army officer assigned to an area would look after the maintenance of law and order and would main­ tain a small army as well. The expenses for the army would be raised from the area where they were stationed. Neither economic integration nor administration integration was a priority; therefore different regions followed their own way of administering their area. A leyal code applicable to Nepal as a whole came into existence only three quarters of a century after the unification of Nepal in 1769. The effects of this original pattern of loose integration have continued for almost two centuries. 1. A weak relationship with the center emerged from letting the old rulers of an area continue governing as customs and traditions of the area were not interfered with by the central government. These old rulers were required only to demonstrate loyalty to the new rulers of Nepal. The army officers deputed to the newly con­ quered area maintained armies on behalf of the government. The cost for maintaining them was acquired from the local people. Land was granted to the army officers in lieu of salary. The local people would then cultivate the land and support the army and officers. 2. The role of central government vas confined to extracting resources from local people in the form of land revenue and other taxes.
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