Changing concepts

Nepal is in the process of drafting a new constitution and the political parties have yet to reach consensus on the model of federalism. So those against restructuring of security agencies argue that unless the model of federalism is decided and a new national security policy is drafted by taking security threats into consideration, security agencies cannot and should not be restructured on the hoof. But whatever the modality of federalism that Nepal adopts, the government should begin restructuring security agencies to make them more effective, efficient, and competent to cope with emerging multidimensional internal and external security threats. Even security agencies themselves have been raising this issue and have put forward restructuring proposals.

Traditionally, security was considered the act of defending the state, its territorial integrity, and the people’s sovereignty when considered through the lens of a state-and military-centric security policy. But today, the concept of security has shifted from state-centric to human-centric and is called human security. According to the definition of human security, it is not only the state and its territory but also the security of its citizens that is equally important for a civilised and democratic state in the 21st century. The concept of  security now encompasses economic, food, health, environment, social, political, and citizen security. Likewise, political freedom, rule of law, human rights, and human and economic development have become integral part of human security.

Therefore, taking Nepal’s changed political situation and the new concept of security into consideration, the government should redefine its national security policy in line with the broader, more comprehensive concept of human security. This will ensure the security of the people and peace in society while also protecting national unity, territorial integrity, and people’s sovereignty.

New strategic contexts

Following the declaration Nepal as a federal republic, the country entered into new political and constitutional territory. Therefore, the security agencies should be restructured in line with the aspiration for federalism, putting to an end to their unitary structure. The Interim Constitution, concept papers at the Constituent Assembly (CA), and subsequent political agreements among the political parties have clearly emphasised the restructuring of the security agencies. The government, therefore, should begin sincere initiatives towards this end.

Along with political and constitutional changes, there have also been significant changes to security dynamics, making them more complex, volatile, and unpredictable. The changed political, strategic, and security contexts pose daunting and multi-dimensional threats to Nepal’s internal and external safety. The long political transition, incomplete peace process, and political instability have created more insecurity and uncertainty in society. Likewise, the debate on federalism, polarisation along religion, caste, ethnicity, culture, and language lines, increasing lawlessness, pervasive impunity, and rise in transnational criminal activities have seriously contributed to the deterioration of the existing fragile security situation. Human rights violations and crimes persist in Nepal because of the deep-rooted culture of impunity and the residue of the armed conflict.

While the security situation has improved since 2006, it remains fragile and sensitive. An unexpected conflict, unrest, or strife can lead to implosion, as the security situation depends on the course the political transition, federalism, and a new constitution will take.

Existing roles and structures of security agencies should be redefined based on the nature of possible threats. The government has not clearly defined the roles and responsibilities of the security agencies and has been mobilising them as per the traditional approach—on an ad-hoc basis. Because of the lack of clarity on roles and responsibilities, there is some degree of duplication and overlap among them. As a result, there are not only conflicts among the security agencies, but also serious security lapses that are undermining the security of the people.

Civilian control

Finally, security agencies should be apolitical, professional, and competent. They should be more accountable to the people than to political masters, and must maintain objectivity and impartiality while performing their roles and responsibilities, following the sound principles of good governance and transparency. They should follow inclusive, people-friendly, rights-friendly, and gender-friendly policies and implement them accordingly. Civilian control of security agencies is a fundamental principle of democratic systems. However, security agencies should not be politicised on the pretext of democratic control, as governments and political parties have done in the past.

The security of peoples and restructuring of security agencies are pertinent, sensitive, and critical issues. But Nepal does not have a comprehensive national security policy to date and has so far been following old and irrelevant state-centric security approaches. The government, therefore, must immediately draft a comprehensive national security policy, taking into serious account the emerging internal and external threats following due consultations with concerned stakeholders. The policy should safeguard national unity, territorial integrity, sovereignty, and people’s security, and should embrace the fundamental principle of democracy, institutionalise rule of law, and respect human rights. The security policy should also redefine agencies in line with human security and Nepal’s federal structure.

As things stand, it seems that any constitution has the possibility of leading to low intensity conflict during and after its promulgation. Security agencies and the government need to prepare adequately for that. Therefore, reforming and restructuring security agencies is the need of the hour, if they are to be able to cope with emerging complex, uncertain, and multidimensional security threats.

Wagle is co-editor of the book ‘Emerging Security Challenges of Nepal’, and a research fellow at Birmingham University, the UK