Opinion

No reform without a motivated civil service: Implementation depends on capacity, morale, and commitment

The real test of reform is implementation. If the government wants reform to reach citizens, it must first build a civil service capable of carrying that reform

By Gyanendra Ghale

Photo: Government of Nepal

Following Nepal's recent political transition, the current government has placed clean governance, corruption control, administrative reform, effective service delivery, and institutional efficiency at the centre of its reform agenda. These priorities also reflect the broader public demand for transparency, accountability, and zero tolerance for corruption that gained momentum during the Gen Z movement. Yet reform will depend on implementation, and implementation depends on the capacity, morale, and commitment of the civil servants responsible for carrying it out. Through its 100-point good governance agenda, the draft of the 18-point national commitment, and the policy and programme for fiscal year 2083/84, the government has signalled an ambitious reform direction. However, one important question has not received enough attention: are the civil servants expected to implement these reforms adequately supported? This is not simply a demand for benefits or privileges. It is a core issue of service delivery and implementation capacity. A civil service that feels unheard cannot be expected to carry reform with confidence. A civil service cannot be expected to deliver high performance and integrity if rising living costs, difficult postings, politically influenced transfers, low morale, limited career development, and weakened workplace rights are ignored. When civil servants are posted outside the capital, they may still have to support children's education, health care, and family responsibilities in the city. When they are posted in urban areas, their families may remain in villages or home districts. This double burden affects morale, family stability, and performance. Government reform documents rightly emphasise monitoring, performance, digital governance, discipline, and efficiency. But reform must also ask a basic question: amid rising costs and difficult postings, what enables honest civil servants to remain committed to public service? Discipline may regulate behaviour, but it cannot create commitment. If honest civil servants feel financially pressured, politically insecure, institutionally unsupported, or treated without dignity, reform weakens its own implementing force. If difficult postings feel like punishment, if evaluations are unfair, or if workplace rights are undermined, compliance may appear on paper, but real implementation energy will not emerge. The government needs a disciplined, ethical, neutral, and effective civil service. But reform should not be reduced to increasing control over civil servants. A civil service that feels legally vulnerable, politically targeted, or unheard cannot carry reform forward with confidence. Voice should not mean partisan mobilisation; it should mean professional, lawful, dignified, and politically neutral representation. This concern has become particularly relevant because the government's reform efforts have included an attempt, through ordinance, to abolish the legal provision for civil service trade unions and replace it with a grievance-hearing mechanism, rather than allowing the issue to pass through the ordinary process of parliamentary deliberation. Parliament must not remain silent when government decisions weaken due process, accountability, or the morale of the civil service. It should create a balanced legal framework that protects the public interest while safeguarding the neutrality, dignity, and professionalism of the bureaucracy. Civil service unions and employee organisations also have an equal responsibility. To retain public trust, they must move beyond partisan alignment and narrow institutional bargaining. In a reforming state, unions cannot only defend employees; they must also become partners in improving public service. Beyond trade unions, the deeper challenge lies in implementation capacity. Do frontline offices have enough staff, equipment, systems, training, and incentives? If civil servants are not trained and supported, even digital governance can fail. Difficult postings require more than orders; they require incentives and institutional support. The government should treat civil servants as partners in reform. Lawmakers must create fair and enforceable safeguards. Civil service unions must defend dignity and fairness, while accepting that public service exists first and foremost for citizens. What should be done now? Three priorities are essential. First, the government should develop a gradual salary and benefits reform framework that reflects the cost of living. Second, the transfer and career development system must be transparent, predictable, and family-friendly. For difficult postings, allowances alone are not enough. Housing, transport, health care, communication facilities, support for children's education, and faster career progression should also be considered. Third, Nepal needs a lawful, dignified, and politically neutral framework for civil servants' representation. Such a framework should address employee welfare, grievances, and rights while limiting partisan mobilisation. Accountability must be accompanied by fairness. If civil servants are provided with realistic working conditions, dignity, and credible career development, they are more likely to accept strict evaluation and higher expectations. Zero tolerance for corruption will be more sustainable when built not only on fear or punishment, but on fair systems, transparent decisions, and protection for honest service. The real test of reform is not declaration, but implementation. If the government wants reform to reach citizens, it must first build a civil service capable of carrying that reform. Lawmakers must give that civil service a fair, neutral, and accountable legal foundation. Civil service unions must prove that their role is not to protect partisan interests, but to defend professional dignity while supporting better public service. Otherwise, the agenda may appear bold in Singha Durbar, but it will become weak precisely where it must touch people's lives. Ghale is a former staff member of the Governance Department of the World Health Organisation