बिशेष समाचार

यसकारण कठिन छ संघीयताको कार्यान्वयन

कृष्ण तिमिल्सिना । नेपालको संविधान २०७२ अनुसार राष्ट्रहित, लोकतन्त्र, अग्रगामी परिवर्तन, विभेद र उत्पीडनको अन्त्य संघीयताको मुल लक्ष्य हो । संवीधानमा उल्लेख गरिए अनुसार मुलुक संघीय प्रणालीमा गइसकेपछि ऐक्यबद्धता, सहिष्णुता तथा सद्भाव र समृद्ध नेपाल बन्नेछ ।

तर मुलुकको चारित्रिक तथा भौगोलीक विशेषता विश्लेषण गर्नेहरुले भन्न थालेका छन्, नेपालका सन्दर्भमा संघीयता नयाँ प्रयोग मात्र हैन विशाल चुनौतीपूर्ण यात्रा पनि हो । किनकी संविधान अनुसार प्रदेश सभाको चुनाव सम्पन्न भएको एक महिना भित्रै संघात्मक संरचनाका संघ, प्रदेश र स्थानीय सहित तीन तहको सरकार अस्तित्वमा आउने छ र राज्यशतिmको बाँडफाँड त्यही आधारमा हुने छ । तर के नेपालको विद्येमान अर्थव्यवस्थाले त्यो कहालीलाग्दो खर्च व्यवस्थापन गर्न सक्छ त ? यो अहिलेको वहशको विषय हो ।

संविधान सभाबाट जारि भएको संविधानलाई व्यवहारमा उतार्ने हो भने केन्द्रमा स्थायी, अस्थायी र पदेन सदस्य सहितको ३७ वटा संस्था रहने छन् । जसमा अस्थायी प्रकृतिका निर्वाचन क्षेत्र निर्धारण आयोग, गुठी व्यवस्था, संघीय आयोग, स्थानीय पुनर्संरचना आयोग रहेका छन् भने मधेसी, थारु र मुस्लिम आयोग १० वर्षपछि पुनरावलोकन गरिने संस्थाको सुचीमा छन् ।

संघात्मक प्रणाली अनुसार, संवैधानिक परिषद्, राष्ट्रिय सुरक्षा परिषद्, अन्तर–प्रदेश परिषद्, न्यायसेवा आयोग, संवैधानिक इजलास र विशिष्टीकृत अदालत ६ वटा राखीएको छ । केन्द्रमा राष्ट्रपति, उपराष्ट्रपति, मन्त्रिपरिषद्, प्रतिनिधिसभा, राष्ट्रियसभा, संसद सचिवालयजस्ता संस्था यथावत् रहने छन् । नेपाली सेना, नेपाल प्रहरी, सशस्त्र प्रहरीबल, सरकारी सेवा, राष्ट्रिय अनुसन्धान विभागको स्वरुपमा खासै परिवर्तन हुने छैन । सर्वोच्च अदालत र न्यायपरिषद्सहित १३ वटा संवैधानिक आयोग राज्यले पाल्नुपर्नेछ ।

प्रत्येक प्रदेशमा प्रदेश प्रमुख, प्रदेशसभा, प्रदेशसभा सचिवालय, प्रदेश मन्त्रिपरिषद्, उच्च अदालत र लोकसेवा आयोग, महिला, दलित र समावेशी आयोगका कार्यालय तत्काल खुल्ने छन् । संविधान मै लेखिए अनुसार मुख्य न्यायाधिवक्ताको सहित प्रदेशमा १० वटा अधिकारसम्पन्न संस्था रहने छन् । सात प्रदेशमा लोकसेवा आयोगबाहेक अरू आयोगका कार्यालय सहित ४९ वटा संवैधानिक संस्था रहने व्यवस्था छ । यो हाल राज्य कोषबाट भई आएको खर्चमा थपिने अतिरिक्त व्यायभार हो ।
प्रदेश बाहेक स्थानीय तहमा जिल्ला अदालत, जिल्ला परिषद्, नगरपालिका, गाउँपालिका, न्यायिक समिति, विशेष क्षेत्र र संरक्षित वा स्वायत्त क्षेत्र गरी ७ किसिमका संस्था रहने व्यवस्था छ । गा.पा र न.पामा ५ जनाको वडा समिति रहने छ र वडा समितिलाई पनि संवैधानिक व्यवस्थाभित्रै राखिएको छ ।

यसरी संघमा २७, प्रदेशमा ४९, ७५ जिल्ला तहमा १५०, गाउँपालिकामा करिव ५३३ र नगरपालिकामा २१७ सहित थप ७५० संस्था क्रियाशील रहने छन् । यस बाहेक तल्लो तहमा न्यायिक समिति ७५० र वडा समिति गा.पामा ९ र न.पामा औसत १४ का दरले ७ हजार ८ सय ३५ रहने व्यवस्था छ । अझ संसदीय निर्वाचन क्षेत्रलाई संस्थाको रूपमा गणना गरिएको छैन । बांकी संस्थाहरूको परिकल्पना विकेन्द्रित शासन पद्धति अनुरूप नै गरिएकाले यी संस्था सञ्चालनको खर्च कसले कसरि व्यवस्था गर्ने भन्ने श्रोत अस्पष्ट छ ।

केन्द्रमा राष्ट्रपति र उपराष्ट्रपति, मन्त्रिपरिषद् २५ जना, सभामुख, उपसभामुख, अध्यक्ष, उपाध्यक्ष, प्रतिनिधिसभा सदस्य, राष्ट्रियसभा सदस्य सहित ३३ पदमा ३३६ जना पदाधीकारी रहने छन् । संविधानले तोके अनुसार केन्द्रमा सर्वोच्च अदालतमा २१ जना, संघीय संसद सचिवालय–३, महान्यायाधिवक्ता, भाषा आयोग र महालेखा परीक्षक १–१ र अन्य ११ वटा संवैधानिक आयोगमा ५ जनाका दरले ५५ जना पदाधीकारि हुने छन् । न्यायपरिषद् पदेनबाहेक २ जना, सरकारी सेवा र बाँकी ४ सुरक्षा निकायबाट १–१ गरी ५ जना सहित ८९ पद श्रृजना गरिएको छ । संविधानले तोके अनुसार केन्द्रमा कुल ४२५ विशिष्ट पद हुने छ ।

संविधानको धारा १७६ को प्रावधान अनुसार ७ प्रदेशमा गणना गर्दा करिब ४५० जना प्रदेशसभा सदस्य हुनेछन् । केन्द्रीय संसदमा जस्तै प्रदेशमा मुख्यमन्त्री, मन्त्री, सभामुख, उपसभामुखको छुट्टै पद हुनेछ । अन्य संवैधानिक पदमा प्रदेश प्रमुख, मुख्य न्यायाधीश, प्रदेशसभा सचिवालयको सचिव, मुख्य न्यायाधिवक्ता, लोकसेवा आयोग, उच्च अदालतका न्यायाधीश र आयोगका सदस्य सहित करिब ७० जना विशिष्ट पद हरेक प्रदेशमा परिकल्पना गरिएको छ । ७ प्रदेशमा राजनीतिक व्यक्तिसमेत झण्डै ५२० जना संवैधानिक पदाधीकारी रहनेछन् ।

नेपालका सन्दर्भमा जल, जमिन र जंगलको विकास सबैभन्दा महत्वपूर्ण पूर्वाधार हुन् । तर नेपालको संविधान २०७२ को अधिकार बाँडफाँड अनुसूची भने जल, जमिन र जंगलमा स्थानीय सरकारको अधिकार के भन्नेमा मौन छ । प्रत्येक तहमा निर्वाचन सम्पन्न भएसंगै तत्काल सरकार गठन हुने छन् । सरकार सहितका संवैधानीक निकाय गठन हुनेबित्तिकै खर्च अत्यधिक चाहिन्छ । तर अहिलेसम्म आम्दानीका स्रोत र क्षेत्र पहिचाहन भएको छैन ।

सात समुन्द्र पारीबाट चामल ल्याएर हुम्ला जुम्लाका नागरिकलाई पुरै परनिर्भर बनाई रहेको राज्य संयन्त्र संघात्मक व्यवस्था कार्यान्वयनपछि खाने र ख्वाउने आधार के हुने भन्नेमा पनि अस्पष्ट छ ।
संविधानमा भएको व्यवस्था अनुसार स्थानीय तहमा अध्यक्ष र उपाध्यक्ष तथा प्रमुुख र उपप्रमुख सहित राजनीतिक प्रतिनिधि मात्र ४७ हजार ४ सय २५ जना हुने छन् । स्वायत्त र विशेष क्षेत्रको गणना बेग्लै छ । जिल्ला अदालतमा एक भन्दा बढी न्यायाधीश रहन सक्ने व्यवस्था अनुसार न्युनतम ३ जनाको दरले ७५ जिल्लामा २२५ जना न्यायाधीश हुनेछन् । जिल्ला समन्वय समितिमा जनप्रतिनिधि ११ जनाका दरले ८२५ जना पाल्नुपर्ने छ ।
सरकारी कोषबाटै व्ययभार व्यहोरिने संस्थाको सूची पनि कहाली लाग्दो छ । अहिलेको व्यवस्था अनुसार निजामती सेवा र अन्य सरकारी सेवा, नेपाली सेना, नेपाल प्रहरी, सशस्त्र प्रहरीबल, राष्ट्रिय अनुसन्धान, सरकारी शिक्षालय, विभिन्न एकेडेमी, नेताका नाममा खुलेका प्रतिष्ठानमा कार्यरत कर्मचारी र पेन्सन खानेसमेत ९ लाख भन्दा बढी छन् ।

विभिन्न मन्त्रालयको तथ्यांक अनुसार विभाग, क्षेत्र, अञ्चल, जिल्ला तथा तलको कार्यालय समेत गणना गर्दा ८ हजार भन्दा बढी कार्यालय व्यवस्थापनको खर्च राज्यकोषबाट भइरहेको छ । यी सबै संस्था र व्यक्तिलाई चलायमान र गतिशील गराउन स्पष्ट ऐन—नियम, उपयुक्त कार्यालय भवन, आवास सुविधा, उपयुक्त आधुनिक संयन्त्र, फर्निचर र सवारी साधन, कर्मचारीहरू, अधिकार प्रत्यायोजन र आवश्यक तलब—भत्ताको सुविधा न्युनतम आवश्यकता हुन् । यी आवश्यकता तत्काल व्यवस्थापन नभएमा प्रदेश सरकार चल्न सक्दैन । केन्द्रको केन्द्रीय सचिवालय सिंहदरबार समेत भूकम्पपछि पुिर्ननिमार्ण हुन नसकेर प्लाष्टिक ओढाएर राखिएको अवस्था छ ।

केन्द्रिय संसद भाडाको भवनमा छ । राष्ट्रपति, उपराष्ट्रपतिको आवास तथा सचिवालय बल्ल तयार हुंदैछ । केन्द्रमै ७ वटा नयाँ आयोग परिकल्पना गरिएको छ । जसका लागि सुविधायुक्त सचिवालय आवाश्यक पर्छ । सिंहदरवार भित्रैका मन्त्रालयहरु भवन नभएर पालमा बसेको नजिर छ । प्रधानमन्त्रीको साविकको कार्यालय, भवन अभावले अन्यत्रै सारिएको छ । मन्त्रीहरु होटलमा अथवा भाडाको भवनमा बसिरहेका छन् । यो अवस्थामा प्रदेशमा प्रदेश प्रमुखको र मुख्य मन्त्रीको आवास तथा सचिवालय व्यवस्थापन अर्को समस्या हो । प्रदेशसभा भवन र प्रदेश सभामुख तथा उपसभामुखको आवास तथा सचिवालयको टुंगो छैन । मन्त्रालय र अन्य संवैधानिक र सुरक्षा निकायका कार्यालय न कतै बनेका छन् न तत्काल त्यो क्षमताको भवन नै भाडामा पाइने अवस्था छ । प्रदेश सरकार बनेपछि केन्द्रबाट सारिने कर्मचारीमा थप झन्डै ४० प्रतिशतले कर्मचारी वृद्धि हुने छन् । संघ र प्रदेशमा संसद र प्रदेशसभा सञ्चालन गर्न सम्मेलन केन्द्रजस्ता ठूला ८ वटा भवन तत्काल चाहिने छ । तर अहिलेसम्म प्रदेशको राजधानीको टुंगो छैन । संवैधानीक व्यवस्था अनुसार अति विशिष्ट व्यक्तिका लागि संघ र प्रदेशमा २ सयभन्दा बढी आवास भवन तत्काल आवाश्यक पर्नेछ ।

यी सबैलाई सुरक्षा दिने प्रयोजनका लागि नेपाल प्रहरीको संख्यामा दोब्बर वृद्धि हुनेछ । कामको प्रकृति, जिम्मेवारी र स्तर अनुसार ७ प्रदेशमा तत्काल ५ सय वटा गाडी, सोही अनुपातमा मोटर साईकल, सरकारी सुविधाका हजारौं थान मोबाइल, कम्प्युटर तथा सञ्चार प्रविधि तत्काल व्यवस्थापन गर्नुपर्नेछ । यसको प्रत्यक्ष असर इन्धनको खपतमा पर्नेछ । प्रदेशको राजधानी तोकिने शहरमा दैनीक आवाश्यकताका साधन र पूर्वाधार बढाउनु पर्नेछ । प्रदेशको राजधानीमा सडक सञ्जाल, विद्युत वितरण, पीउने पानी, जस्ता पूर्वाधारमा खर्च थपिने छ ।

स्थानीय तहका सरकारहरू व्यवस्थित गर्न अब सबभन्दा ठूलो खर्च वडा समितिको व्यवस्थापनमा लाग्छ । वडा समिति नै जनताको नजिकको सरकार हो । सरकारले जनतालाई दिने र लिने सेवा यसै विन्दुबाट सञ्चालित हुन्छ । केही नपाका वडा कार्यालयहरू भए तापनि धेरै नपा र गापाका नयाँ कार्यालय भवन छैनन् । झन्डै ८ हजार कार्यालय भवनहरूको आवश्यकता पर्छ । जनतालाई सेवा दिने जरा तहको निकाय भएकाले यसलाई उच्च प्राथमिकतामा राख्नुपर्ने हुन्छ । ठूलो संख्यामा कर्मचारीहरू आवश्यक पर्छन् । साथै धेरै नपा र अधिकांश नयाँ गापाहरूको पनि कार्यालय भवनहरू छैनन् । झन्डै साढे ६ सयको हाराहारीमा नयाँ कार्यालय भवनहरू आवश्यक पर्छन् ।

त्यस्तै स्थानीय तहमा सामान्य अनुमान गर्दा पनि १० हजार मोटरबाइक, १० हजार कम्प्युटर, एक हजारजति मोटर, एक हजार फोहोरमैला ओसार्ने कन्टेनर, २ हजारजति ट्रयाक्टर, ५ सय दमकल आवश्यक पर्ने देखिन्छ । अब स्थानीय तहको सरकार सञ्चालन गर्न थप २० हजारभन्दा बढी कर्मचारीहरू आवश्यक पर्छन् । टेलिफोन, बिजुली, खानेपानीको खपत उही अनुपातमा बढ्नेछ र आपूर्तिको व्यवस्था गर्नुपर्ने हुुन्छ ।

माथि उल्लेख गरेका यान्त्रिक सामान नेपालले उत्पादन गर्दैन । सबै विदेशबाट खरिद गर्नुपर्छ । प्रत्येक तहमा निर्वाचन हुने बित्तिकै सरकार गठन हुन्छ र गठन हुने बित्तिकै माथि भनिएका क्षेत्रमा खर्च अत्यधिक चाहिन्छ । तर नयाँ आम्दानीका स्रोतको क्षेत्र भने बनेको हुँदैन । नयाँ आम्दानीका स्रोत खोज्न र बढाउन स्थानीय र प्रादेशिक सरकारलाई कम्तिमा ३ वर्ष लाग्नसक्छ । त्यसवेलासम्म स्थानीय सरकारको खर्चको अधिकांश हिस्सा केन्द्रले थोग्नुपर्ने हुन्छ । नयाँ संविधान अनुसारका ऐन तथा नियमावली बन्नै बाँकी छन् । ऐन—नियम बिनाका निर्णय राज्यसञ्चालनको अर्को समस्या हो । जसले पुँजीगत खर्च कहालीलाग्दो बन्नेछ र विकास खर्च सुन्य हुनेछ । समग्रमा संघीयता कार्यान्वयनको चुनौती केलाउंदा मुलुक कतै नयाँ संक्रमणकालमा भासिँने त हैन भन्ने जिज्ञांसा पनि उठ्न थालेको छ ।

प्रदेशमा प्रयोग हुने भाषाको सन्दर्भ, प्रस्तावीत ७ वटा नयाँ संवैधानिक आयोगको काम र भुमीका, संविधानको अनुसूचीमा उल्लेख भएका अधिकारको प्रयोग, मौलिक हकको पालना, प्राकृतिक स्रोत दोहनका कुरा अब नयाँ मुद्दा बन्नेछन् । यस बाहेक कर्मचारी व्यवस्थापन, कर राजस्वका स्रोत, स्थानीय तहको सांध सिमाना, नागरिकता र राहदानी परिवर्तनको प्रश्न थप जटिल छ । जसले संघीयतालाई कुहिरोमा हराएको काग जस्तै बनाउन सक्छ ।

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