The civil service is the permanent institution of the state and a foundation of democratic governance. Regardless of which political party comes to power, civil servants are responsible for implementing the government’s policies and programmes. Yet the morale of Nepal’s civil servants appears to have declined significantly in recent years. This has implications not only for administrative performance but also for the quality and timeliness of services received by citizens.
The issue has become particularly relevant under the current government led by Prime Minister Balendra Shah. In the March 2026 general election, the Rastriya Swatantra Party (RSP) secured 182 of the 275 seats in the House of Representatives, giving it a clear parliamentary majority. Shah was subsequently appointed prime minister on 27 March.
The election created significant expectations among the public. The RSP’s election symbol, the bell or ghanti, became closely associated with the prospect of a new political leadership, including Shah as the party’s prime ministerial candidate. The new government consequently assumed office with considerable public expectations for change, particularly in governance and service delivery.
While the programmes announced after the formation of the government initially generated hope, sustaining those expectations has proved challenging. Doubt and uncertainty have gradually replaced some of the optimism that accompanied the government’s formation.
One of the government’s central priorities appears to be improving public service delivery. The effectiveness of any government is closely linked to the bureaucracy because civil servants are responsible for translating political decisions into administrative action. In Nepal, where many administrative processes are still not fully digitised, improving service delivery will inevitably require time, institutional reform and adaptation.
The roots of declining morale
The working culture of the bureaucracy has long been criticised for being slow, hierarchical and resistant to change. There is also a widespread public perception that government employees are vulnerable to corruption and personal interests. Although political changes and movements have repeatedly sought to improve governance, many citizens continue to experience delays and difficulties in accessing public services.
However, it would be unfair to assume that all civil servants are resistant to reform or committed to poor service. Many employees entered the civil service through competitive examinations and continue to believe in providing quality and timely services to the public. Treating the entire civil service as corrupt, inefficient or incapable of reform risks further demoralising the very institution expected to deliver that reform.
The working habits and attitudes that have developed within the bureaucracy over many years cannot be changed overnight. Reform requires time, institutional support and a working environment in which employees are expected to perform but are also treated with dignity and fairness.
For this reason, attempts to reform the bureaucracy through threats or intimidation are unlikely to strengthen democratic governance. Ministers and senior officials need to be able to hold employees accountable while maintaining their professional dignity and self-respect.
There are several factors contributing to declining morale among civil servants.
Political and managerial pressure
One major concern is the working style of departmental ministers and the pressure placed on civil servants in day-to-day operations.
Ministers may have political authority, but they do not necessarily have detailed knowledge of the policies, rules and administrative procedures governing their respective ministries. At times, employees may therefore come under pressure to complete tasks outside established procedures or to bypass prescribed administrative channels.
Such pressure can create uncertainty among civil servants and undermine their confidence in the system. Ministers should provide political direction while allowing professional administrators to carry out their responsibilities within the framework of existing laws and procedures.
Inadequate flow of information
Another important problem is insufficient information flow within public administration.
The civil service is often described as the permanent mechanism of the state, yet employees are not always adequately informed about government decisions, priorities, methods of implementation or changes in policy.
It is difficult to expect employees to perform effectively and remain motivated when they are uncertain about the objectives they are expected to achieve or the procedures they are required to follow.
A systematic and regular mechanism for communicating government decisions, policies and priorities is therefore essential.
Transfers and postings
The use of transfers and postings as a form of political reprisal can also damage morale.
There is a perception among civil servants that employees appointed or posted during a previous government may be viewed with suspicion by a new administration. If employees believe that their professional future depends on their perceived political affiliation rather than their competence and performance, an atmosphere of insecurity develops.
Transfers and postings should instead be based on professional competence, performance, institutional needs and transparent criteria. A predictable and fair system would reduce anxiety and help strengthen professionalism within the civil service.
Digitalisation and technological insecurity
The government’s emphasis on digitalisation is intended to make public services more efficient and accessible. However, technological change can also create uncertainty among employees who feel they lack the necessary skills or fear that their existing roles may become less relevant.
This concern should not be addressed by blaming employees for being unfamiliar with technology. It should be addressed through timely training, reskilling and institutional support.
Digital transformation should be viewed as an opportunity to strengthen the capacity of civil servants rather than as a threat to their employment.
The role of civil service unions
The government’s plans concerning civil service unions have also contributed to uncertainty among employees.
Representative organisations can provide employees with a mechanism to raise concerns about workplace conditions, unfair treatment and professional rights. At the same time, unions must also operate within a framework that protects public service delivery and professional standards.
The challenge is to maintain a balance between employees’ legitimate right to representation and the need for an efficient, politically neutral and accountable civil service.
Restructuring and job security
Recent government efforts to improve the efficiency and cost-effectiveness of the civil service have created another source of uncertainty.
Proposals to reduce the number of federal and provincial ministries, restructure government departments and potentially reduce the number of government employees have raised concerns about job security. Discussions around mandatory retirement, as well as possible changes to entry and retirement age limits, can further contribute to uncertainty about career stability and future opportunities.
Even where such reforms may be intended to improve the efficiency of government, uncertainty surrounding their implementation can affect employee motivation and morale.
What can be done?
Addressing declining morale requires more than a single intervention. It requires changes in management, communication, professional development, personnel administration and institutional culture.
First, there needs to be a fundamental improvement in the working relationship between ministers and civil servants. Undue pressure on employees should be minimised, while legitimate performance expectations should remain clear.
Questioning the qualifications of ministers would not be appropriate, but ministers may not always be familiar with the detailed legal and procedural frameworks governing their ministries. Orientation programmes could therefore help ministers understand the institutional, legal and administrative systems within which they are expected to operate.
Second, employees must be properly informed about government priorities, the nature of their tasks and the procedures for implementation. A systematic and regular information-flow mechanism would allow civil servants to understand not only what is expected of them, but also why particular decisions have been taken.
Third, transfers and postings should be based on transparent and professional criteria. Employees should not be evaluated or transferred simply because they served under a previous administration. Professional competence, performance and institutional requirements should be the primary considerations.
Fourth, the government should invest in training to support digital transformation. Employees who feel insecure because of limited information-technology skills should be given opportunities to acquire new skills. Refresher and reskilling programmes can improve technical capacity while reducing anxiety about technological change.
Institutional change also requires patience. Changes in individual behaviour and organisational culture take time. Sudden changes to systems and working environments established by previous governments can naturally create confusion and uncertainty. The current government should therefore manage the transition carefully, providing clear guidance and allowing employees time to adapt to new expectations.
Finally, job security and career stability remain important concerns for civil servants. Employees need a professional environment in which they can carry out their responsibilities without fear of arbitrary punishment, transfer or dismissal. At the same time, job security should go hand in hand with accountability and performance.
A civil service that feels secure but is not accountable cannot deliver effective public services. Likewise, a civil service that feels constantly threatened is unlikely to perform at its full potential.
From confrontation to partnership
The decline in civil service morale is not the result of a single factor. It reflects a combination of structural, managerial, political and policy-related pressures.
The government should not treat civil servants as either puppets or enemies. They are part of the machinery through which government policies are implemented.
If the government treats the bureaucracy as a partner in reform — while maintaining clear standards of accountability and performance — it can create a more constructive environment for change.
Ultimately, better public services require effective coordination between political leadership and the professional bureaucracy. Ministers provide the political direction; civil servants provide institutional knowledge and administrative continuity. Neither can deliver lasting improvements in governance by working in isolation.
If Nepal’s current reform agenda is to translate into better services for citizens, improving the morale, professionalism and capacity of the civil service must be part of that effort.
