The Himalayan nation is far from resolving its governance woes more than five years after the democratisation and a change of elected government. If charges of corruption against government functionaries were not enough,
Analysis
The Himalayan nation is far from resolving its governance woes more than five years after the democratisation and a change of elected government. If charges of corruption against government functionaries were not enough, the power tussle between the bureaucracy and the political leadership has mired good governance in all kinds of controversies. All’s not well in the nation that values Gross National Happiness (GNH) over economic growth.
The nation, still at the infant stage of democracy, is affected by the pangs of reforms. In the backdrop is a booming hydro-power sector and heightened expectations of good governance from citizens. Tackling the ills of governance remains a challenge for the country’s political and executive leadership.
Back-to-back controversies
Two back-to-back controversies rocked the public sector of Bhutan in the latter half of 2014. Allegations of financial irregularities have surfaced at the highest levels of permanent executive – or, civil services. This was followed by the Cabinet surrendering three cabinet secretaries on 12 December.
The government explained the dismantling of the Committee of Secretaries (CoS) as "exceeding its mandate by discussing issues outside the scope of its terms of reference" and "withholding information, including important decisions from the government." The Prime Minister’s Office and the Cabinet Secretariat also accused the Economic Affairs Secretary of misusing the CoS.
External relations with India were also said to be at stake owing to the controversy. The joint statement of the Prime Minister’s Office (PMO) and the Cabinet Secretariat said that the letter sent by the CoS to the Indian Government was in conflict with the advice of the Office of the Attorney- General.
The Royal Civil Services Commission (RCSC), the apex institution of civil services, in a press statement refused to accept the "surrendering" of the secretaries. The RCSC cited provisions in the Constitution, the Civil Service Act of Bhutan, 2010 and the Bhutan Civil Service Rules and Regulations, 2012 to justify its position. The tussle between the RCSC on the one hand and the Cabinet Secretariat and the PMO on the other, is set to intensify with neither side ready for a compromise. The rift between the political leadership and the bureaucracy has exposed not just the chinks in governance but has also raised serious doubts over governability, where conflict of interest is a recurring aspect.
Governance under democracy
Not long ago (in 2013) the people of the tiny nation ousted the Jigme Thinley government to elect the People’s Democratic Party (PDP). The predecessor government of Bhutan was no less embroiled in controversy on financial and other irregularities with key political leaders and bureaucrats convicted on corruption charges. The PDP fought the elections on the promise that it would provide good governance.
While, the PDP took credit for successfully providing an alternative to Thinley’s DPT, the nation’s bureaucracy seemingly helped by their Indian counterparts patted their own backs for the vote swing. This difference in perception, especially on the bureaucracy’s part has further aggravated the power tussle.
An instance of the bureaucratic community’s aspirations was its reluctance to accept democratic reform citing the wishes of the people of Bhutan who wanted the monarchy system to continue. Hence, in recent times, vested interests of certain bureaucrats have repeatedly come to the fore.
The DPT which is the principal opposition party is trying to reap political dividends out of this confrontation. The incumbent and the opposition party DPT have accused each other of high-handedness in the case.
Resolving the problem
Breaking the deadlock between the Cabinet Secretariat and the RCSC is urgent for the people to continue to have faith in the institution of government. The Cabinet is to answer RCSC’s demand for clarifications. Constitutional and other legal provisions are the reference point.
Either the judiciary has to be involved or the King has to intervene in resolving the matter. The latter seems to be highly unlikely, considering the King’s intentional distance from interfering in the day-to-day affairs of the country. There are also the institutions like Anti Corruption Commission whom the Cabinet has entrusted to investigate allegations of corruption.
However, the main contention remains of curbing corruption and for it the RCSC and the political executive have to work hand-in-hand. For a compromise to be reached, political will and accountability of the civil servants become important.
The RCSC must also ascertain whether there was any conflict of interest on part of cabinet secretaries. Personal and political vendetta must be overcome for reaching a compromise in the interest of the people of Bhutan.
Laws like the Right to Information Act and institutions like Corruption Commission need to be strengthened to ensure transparency and accountability and for improving governance in the country. Jigme Keshar Namgyel Wangchuck has already cautioned government functionaries against corruption during the Nation Day Address. It is time for Bhutan to reassess the functionability of institutions and introduce reforms for achieving the cherished socio-economic development, measured by Gross National Happiness. Unless, this is done the nation would be far from making its people happy.
(The writer is a Research Assistant at Observer Research Foundation, Kolkata)
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