Role of Nepal Television in Addressing the Issues of Good Governance: An Empirical Analysis...

66 : Television Journal of Nepal

Abstract

Nepal Television (NTV) is the only and the largest free-to-air television in Nepal. Slogan of NTV is ‘communication for development’. Good governance is one of the major aspects of development. NTV transmits several materials related to good governance and people’s voice. This paper analyses clients’ experiences and perception on service delivery in five tax offices in Kathmandu and a transport management office in Lalitpur. The taxpayers, during the survey, had fewer grievances because of the open data system but expect much more than the current role NTV has been playing. Qualitative exploration method was adopted at the transport management office, Bagmati, as the system there was very much unmanaged. The clients were found victimized by open and institutional bribery using 'middle-men' in the office and suggested NTV for media activism in controlling systematic corruption at the office.

Keywords: Nepal Television, good governance, transparency, corruption control.

Role of Nepal Television in Addressing the Issues of Good Governance: an Empirical AnalysisRajendra Raj Timilsina

Television Journal of Nepal : 67

Introduction

Nepal Television (NTV) began transmission in Nepal from 1985. In launching the new type of media, there were comprehensive debates on favor and against of whether television was the need of the time in Nepal. Some members of the then parliament 'Rastriya Panchayat' stressed that establishing television was luxurious in that country where people were compelled to walk for hours even to fetch a jar of drinking water (Upreti, 2012). Campaigners in favor had to justify the needs of the television station in the country. According to Adhikari (2010), Bharat Dutta Koirala, who later won the Magsaysay award for his contribution on development communication, had presented a paper entitled ‘Development Oriented Television in Nepal’ (p. 181) in the inception period to justify the needs. On the background of the establishment of NTV, ministry of communication was established in 1972. Accordingly, Radio Nepal and NTV got the slogan from the government of Nepal (GoN) as per the development communication campaign.

Now, television is the first choice for information of 99.3% of urban Nepalis and second choice (90.6% people) in rural areas where electricity is available (UNDP, 2009). NTV is the first television that is free-to-air state broadcaster. It has almost nationwide coverage and effectiveness. State broadcaster Nepal Television has 19 transmitting stations (UNESCO, 2013). As a result, the broadcaster has the widest reach among the Nepali channels. NTV logo and its letterhead clearly mention its motto: "Communication for Development".

United Nations Organization (UNO), World Bank (WB), UNESCO and other organizations have established separate divisions of development communication. Distinct development communication approaches and communication means used can be identified within UN agencies, governmental and non-governmental organizations (FAO and UNESCO, 2005). Good governance and controlling corruption have been accepted as major agendas of development. Recently, UNO (2015) has set new agenda (agenda number 35) to


achieve sustainable development by 2030 in the world with good governance for peace and security:

Factors which give rise to violence, insecurity and injustice, such as inequality, corruption, poor governance and illicit financial and arm flows, are addressed in the agenda. We must redouble our efforts to resolve or prevent conflict and to support post-conflict countries, including through ensuring that women have a role in peace-building and state-building. (UNO, 2015, p. 8)

Good governance is a vital part of development and development communication is a major tool for this. Reflecting donors' emphasis on proper governance, FAO and UNESCO (2005) say, “Corruption keeps coming up as the number one impediment to development.” UNESCO, (2008) has developed media development indicators where all channels that carry news and information which have internationally approved framework include a major ingredient (i.e. a watchdog of government in all its forms, promoting transparency in public life and public scrutiny of those with power through exposing corruption, maladministration and corporate wrongdoing) (p. 3). Acknowledging the needs, academic discipline of development studies associates good governance as one of the vital aspects of the subject.

NTV transmits news items, talk-shows, discussions and vox-pop on corruption control and good governance. I have been reporting in the beat as well following the issues of good governance since 2005. This paper tries to reflect NTV's influence on the field in covering the issues which are very complex as Rai (2013) analyzes cultivation theory of media effect. Theoretically, social responsibility theory of press (media) and good governance has been applied in analyzing the reflections.

Jurisdiction of NTV and Purpose of the Study

NTV has its own roles and responsibilities, which cannot be very far from the value system in politics. It was established in 1985, January under the provisions of Communication Corporation Act, 1972. It


has obligation to laws relating to broadcasting as other broadcasters do in accordance, mainly to National Broadcasting Act, 1993 and Right to Information Act, 2007. It has the responsibility to promote and safeguard people’s rights to expression and information, which is guaranteed by the Constitution of Nepal. NTV has to inform the people on nation’s economic, social and cultural activities and to promote feeling of harmony and co-existence among different ethnic groups, classes, regions and religious communities within the country. Acharya (2002) has summed up the program production and transmission of NTV according to the laws:

a) Development related programs covering areas like agriculture, education, industry, commerce, science and technology, health, family planning, forest and environmental conservation. b) Programs that promote equality, mutual goodwill and harmony among all the ethnic communities, languages, classes, regions and religious groups of the country. c) Programs that help uplift different languages and cultures of Nepal. d) Programs that promote national interest and national unity. e) Programs on democracy and programs that create social awareness among people. f) Programs that spread social consciousness and help augment democratic values, norms and culture. g) Programs that help to strengthen Nepal’s relations with neighboring and friendly countries. h) Programs related to the foreign policy adopted by the country. i) Programs that promote folk music and folk culture of the country. j) News of important national and international events. (Acharya, 2002, pp. 132-133)

These provisions have been branding NTV as the authentic media house in the country. NTV in itself has been accepted widely as an authority for messages among all. NTV does several programs and news to address its goal, jurisdiction and Nepal’s commitments in global documents. As a working journalist, I have been involved in producing and transmitting investigative reports, talk shows, news packages and peoples’ voice. However, audience and analyst’s satisfaction level have not been satisfactory as we read


out suggestions like Adhikari (2004, p. 18): NTV should give up cheap popularity and follow own agenda for national level vision among the people. Such comments and inputs encouraged me for this study on how the people have been evaluating the performance of NTV.

Methodology

Revenue and transport offices are generally known as bribery prone areas. This paper is the outcome of empirical study among stakeholders. Questionnaires and interview schedule were used as tool as per the respondents/participants nature and difference of the fields. Survey was conducted in the premises of Inland Revenue Office Number 2 & 3 in Babarmahal, and Tax Service Offices in Tripureshwor, New Road and Thamel, Kathmandu to collect people's opinions on recent changes in the offices mentioned above. However, survey effort was not possible at Transport Management Zonal Office (TMZO) of Bagmati Zone, Ekantakuna, Lalitpur because of rampant and open corruption there. Middlemen were active in and outside the office premises. Live experiences were collected in Eakantakuna in January 2016. Besides, the interview taken with officials in the offices and the middlemen were unstructured. Role of NTV in addressing the issues of good governance like bribery, redtapism, up-passing and buck-passing, which are delaying tools of bureaucracy in the service delivery so that people get trapped to pay for solving their problems promptly, was also asked. People's feeling and response on corruption control, in general, through the material transmitted on NTV were also collected during the field work. Reflective journals were also used. This paper presents data, quantitatively, on tax offices clients and qualitative on TMZO respectively on the basis of field condition and do-ability of the research.

Issues of Good Governance

Good governance is, among other things, participatory, transparent and accountable system as describes UNDP (1997). It requires effective and equitable governance which promotes the rule of law.


Efficiency, effectiveness and participation are other crucial issues for good governance as the international documents described.

Nepal is a state party to the convention of UN Convention Against Corruption (2004). The document also focuses on accountability and transparency in promoting development and making the world a better place for all. Article 15 of the Convention has provisioned taking bribe is a criminal act and bribery of national public officials directly or indirectly is crime and they must be punished.

Media is social actor in its own right, acting as a watchdog over powerful institutions (both public and private) and holding government to account UNESCO (2008, p. 51). This means the state owned television can also do the duty of promoting good governance in Nepal. Such documents point their fingers to different bodies of Nepal in different periods. Transparency International publicized a report in 2007:

Nepal’s judiciary is perceived to be one of the most corruption-afflicted in the country. Although corruption affects every sector of governance, corruption in the judiciary poses an immediate threat to ordinary people because it directly affects their lives, property and liberty. It is a major hindrance in securing the rule of law.” (p. 236).

Nepali thinkers analyze that officials including those in donor agencies to the anti-graft body have been involved in acts that are against good governance. (Dhakal, 2010) says only lower level personnel who are not affiliated to political parties or syndicates are penalized for corruption generally. Prevailing values and social mores also affect the presence or absence of corruption, and the role of trust in economic, social, or political relationships (Sen, 1999). The exercise of freedom is mediated by values, but the values in turn are influenced by public discussions and social interactions, which are themselves influenced by participatory freedoms. Each of these connections deserves careful scrutiny (p. 9).


On the other hand, donors have linked development communication to aid effectiveness and transparency. OECD (2014) takes it as two facets of development communication: development co-operation and development communication can help contribute to a truly global agenda for improving lives around the world. However, fair and democratic political systems are based on trusted channels of communication and credible watchdogs. (Kharel, 2012. p. 100).

Quantitative Data Presentation

Among the taxpayers, 100 clients were surveyed in the five tax offices in Kathmandu. Educated and polite clients were found at the offices. They were reluctant to express their complaints initially. However, some of them accepted paying undue money secretly to the tax personnel for easy service despite the use of open data system of tax administration.

A. Groups of the Respondents

Age Male Female Percentage Total

26-35 23 5 28 28

36-45 41 4 45 45

46-55 18 2 20 20

56-65 7 - 7 7

Total 89 11 100 100

Field survey, 2015 & 2016

In terms of age factor, tax payers in the age group of 25-65 years are shown in the table presented above. Largest number of the visitors (45%) were aged between 36 to 45 years. In terms of gender, only 11 percent female clients were found in the offices.

B. Complaints on NTV

Only 2% of the respondents expressed their grievances through television camera. They met TV camera and recorded their


complaints which were aired on NTV. Others have no such experience. 8% of the respondents told that they are not interested in complaining to any media. According to 90 % respondents, they have never faced TV camera.

C. Priority level of public complaints by NTV

NTV’s priority to public complaints on the screen was part of the questionnaire. 38 % of the respondents' answer was "less priority”, 35 % told “only for formality”. However, 23 % of the respondents were positive and said the space on the screen was “Okay”.

D. Distribution of role of NTV on transparency

Contribution of NTV in making the system transparent was appreciable, say only 9%. Another 9% found NTV's role satisfactory. 5% of the people responded that NTV's contribution was “zero” and the largest number (77%) said it was “insufficient”.

E. Contribution of NTV in clients’ education in service delivery

Another major function of television is educating people. 78% of the respondents thought the educating role was insufficient, 9% replied as appreciable and 8% said it was “good”. Another 5% thought the role was “zero”.

F. Role of NTV in unnecessary expenditure reductionLack of information hinders the services. 12% of the people said television materials helped to reduced unnecessary expenditure for services and 7% clients told NTV helped to reduce time of receiving the services in the offices because of the information. Another 81% were not satisfied from the transmission.

Qualitative Data Presentation

In this section, I would like to relate my experience at TMZO, when I started to conduct questionnaire survey at its office in Ekantakuna. The experience was quite different from that in the tax offices,


where data collection was not a trouble. Several young males surrounded me as I was destroying their business. They dealt me very skeptically. I was compelled to stop the questionnaire survey. This forced me to apply observation and interview methods for data collection.

After several days, I went undercover as a client so that they did not identify me as the researcher. I observed their activities, listened to them and saw their tactics on convincing the clients to solve their problem within minutes. Then I started interviewing as a client myself in at attempt to trace the net of bribery and role of NTV. My observation and interviews explored information as presented below:

More than 200 middlemen are active at the TMZO, Ekantakuna, who are the focal persons for bribery in the office. When a person parks her/his vehicle, the person is asked “Do you need any help?” The question is the first step for taking undue money for quick service delivery. Their general claims are; "We can complete all procedural steps within 30 minutes where as it might take hours if you do yourself. You do not know the processes to submit the documents in different windows. We can avail with driving license even if you have failed the driving test because we have links. Renewing license and paying yearly tax is also pretty much redtaped, but we can pay easily.

Several persons use the intermediaries, found wandering around the office, for prompt service. Some of them go to the cafes nearby. Some groups of the clients can be seen negotiating on the roads after assigning the broker/s.

Charge of the “service” varies according to the bargaining capacity of the clients concerned and the queue of the service seekers on the particular day. Generally, they receive three hundred rupees for renewal of driving license and one thousand for submitting vehicle tax. It goes up if the due has piled up for years. A group of middlemen was discussing: “He (a middleman) charged a client one thousand rupees for ownership transfer of a vehicle.”


I talked to the officials at the office as well. However, they claimed innocence and said they had no relations to the brokers. They claimed that seeking help from the middlemen is the weakness of the service seekers. However, I saw they have nexus. Such “dalaal” or the middlemen have special connections. During a friendly chat, one middlemen claimed he had links to the officials while I approached him as a client. In contrary, when I introduced as a researcher they told: “We know the steps and the procedures and also the windows which is difficult for new comers.” This only makes the service faster, they claim.

I was at TMZO, Pokhara to renew my own license. I was standing in a queue and people wearing jacket of a particular driving institute were doing all jobs for their own “clients” in the office rooms as government officials do. The access was totally unauthorized. I lodged a complaint and acting on it, Commission for the Investigation of Abuse of Authority (CIAA) arrested one officer. But the situation has not changed because the system is the same.

Rabin Adhikari (name changed)Assistant level official, my relative as well, last year earned more than Rs. 300,000, in addition to his monthly salary, in 14 months period while he was deputed at the TMZO, Pokhara. Then, he was transferred under the influence of the trade union/s to give the “lucrative” opportunity to some other personnel. Such offices are known to have contributed larger amount to the trade union leaders. All unions are affiliated to political parties in Nepal.

I had aired some stories years ago. As a result, CCTV cameras were installed at the Ekantakuna office and the license trial spots. Later, the cameras were damaged under the directives of a minister, as a vernacular paper had reported. Last year, popular minister for general administration Lal Babu Pandit had introduced two shifts in service delivery offices: 6 AM to 12 noon and 10 to 5 in daytime. TMZO also applied the rule and the minister inaugurated the service from the motorbike license form submission section in Ekantakuna.


Now, that particular office has become one of the major trouble centers for service seekers. Hundreds of people are in the queue since 4 am to get the form to apply for license. On the other hand, the personnel who distribute the form arrive only after 7 AM. They close the door at 12 noon sharp. General people are unaware that the office closes after midday, interestingly and those who reach the office after 12 return empty handed. It seems that TMZO is an autonomous entity beyond Nepal government and had become a perfect example of maladministration.

Deepak Rai, a client“I received vehicle license my own effort with spending almost nearly a month and now I am here for my friend to help in avoiding the middlemen. When I had arrived here, time was 11 AM. The form distribution counter was to close midday and I could not receive the form. I came next day for the form earliest in the morning but I was told for next day saying computer failure caused problem. In the third day, I arrived at 4:00 where other 150 people were standing on the queue whereas the personnel come at 07:00. That day I submitted the form. Fourth day, I appeared in written examination. I was asked to come on sixth day for trial in Min Bhawan, Kathmandu, 7 kilometer far from the office. Then, asked to come in 15th day. I arrived in 18th day. They told, the license has not been printed and I have to come after another 7 days. Finally, I got it on 25th day. Actually, I was told to receive license without examinations; Rs. 7 thousand for vehicle trial and Rs. 1500 for written examination. It was easily possible within a week if government procedure or system had intact. This is not good governance. But I never saw news on such hurdles and brokering in any media including NTV. Such stories can create pressure for reform.”

(Source: interviewed by the author at TMZO, Ekantakuna on 17 January, 2016)

In comparison to tax offices’ clients, TMZO’s regular visitors found “dalaal” or middlemen of their own age group. Most of the middlemen are from 20 to 30 years' age group. Some of the permanent visitors found women as well. Regular visitors to Tax offices are entrepreneurs whereas TMZO found intermediary brokers and real clients/non-tax revenue payers were helpless.


Discussion

Obviously, NTV is official and reliable on whatever it transmits. It has been able to earn people’s faith. However, the people have expectations too. Most of the respondents demanded greater role of the station in making the public offices like TMZOs more transparent. Kickbacks were demanded openly in revenue administration in the past, as they remembered. Now, they have felt the change as indicated by this survey. Open office system has not only improved the service delivery but also made it more client friendly. Status of the payment and dues can be tracked on the Internet as a result of which redtapism and bribery has reduced significantly. Use of open data is new avenue for transparency and accountability (OECD, 2014) and Nepali tax system has adopted it now. The respondents were not satisfied while I was doing a research in 2006 in the same offices. Now, grievances have reduced because of the open data system. However, the people demanded proactive role from NTV as much as possible to promote accountability in governance.

Besides, the progress in tax administration, TMZO’s clients expect greater role of televisions like NTV. “If, NTV camera comes daily for six months, open bribery in the office will come to an end,” a bribe victim told during an interview with me. The corrupt officials had broken CCTV surveillance in the past because of lack of media follow up. Another participant suggested, “Yes, NTV might have done reporting on corruption control but occasional coverage cannot change the behavior.”

Some of the respondents, who are at middle age, still remember the footage of the arrest of 22 employees of revenue service who were constantly trying to veil themselves using curtains and small handkerchiefs. In addition, a few other programs aired on NTV have contributed to promote transparency and accountability in the country. As in the respondents’ own words- "In disseminating information, NTV is educating people". On the other hand, 77% of the respondents at the same tax venue clearly stated that the role of NTV in promoting transparency is “insufficient”.


Expressed suggestions were very innovative, inspiring and reality based. It was suggested that the NTV played a key role in facilitating transparency, accountability and good governance as a whole. To this end, NTV should prioritize peoples’ problems from the leaders’ speeches. Autonomy in operation and freedom for factual analysis were other important concerns. Some raised questions on the rate of return of NTV for the public where government has invested more than 1.5 billion (approximately). Yes, it airs entertainment programs in addition to educational programs but the the time seems longer than Public Service Announcement programs. NTV can also use such entertainment programs for developmental issues including corruption, bribery and anomalies as Servaes (2008) takes example of messages and situations on social issues and problems in making edutainment. As the field of communication for development evolved in the post-war era and onwards, edutainment evolved as a communication tool used particularly in health communication, but also in other fields as agricultural development and more recently even in conflict resolution and peace-building. (P. 328).

Commercialization and entertainment have been prioritized on the screen, as the people reacted. Whereas, development communication has been used as a tool for behavioral change in several societies. Nepali media also can use this. There are several programs like music video, songs, comedy and others for entertainment on the TV. We can highlight the issues of corruption and bribery within the programs as teasers. There is a major hurdle of dependency syndrome as it has been experiencing in transmitting PSAs (Timilsina, 2013).

In such donor driven habits, government only can implement through its related laws. For example: Preamble of RTI Act, 2007 declares, “It is expedient to make the functions of the sate open and transparent in accordance with the democratic system and to make responsible and accountable to the citizen”. According to Some participants, NTV has been running under government umbrella but its journalists are free to be affiliated with Federation of Nepalis Journalists (FNJ) so that they can raise their voice for editorial


freedom as well as good governance campaign. Being a journalist, I have reporting on issues of good governance. Such as, there were low priority cases on corruption in Supreme Court of Nepal during 2005 to 2008. I made different four news stories on that where some former ministers’ photos and pending cases were mentioned. Finally, the apex court heard the voice and the leaders were sent to jail. Similarly, breaking stories on black marketing and hording in 2009 were very useful stories so that GoN had taken action against them. In another experience, while visiting the Land Revenue Office, Dillibazar, I met a friend who was an officer there. He was almost mobbed by a crowd in his chair and was very busy. He was taking bribe from middlemen continuously. When he saw me he stopped taking bribe. Then I started investigation on him. I found he was corrupt and very controversial with allegations of being involved in transferring the ownership of public land to private individuals. One day, I went with cameraperson, reported various complaints and aired a news about him. Finally, a charge sheet was filed against him. Several such items and programs have been broadcast on the screen of NTV. However, people expect much more from NTV with the increase in the level of corruption in government offices. Clients have found strong political nexus in such corruption. Bista (1991) inequality has been promoted in public service delivery either through culture of Afno manchhe (one’s inner circle or associates) for smooth functioning in all government and corporation offices. If there is no such Afno manchhe, the service seeker should pay bribe for prompt service. Subedi (2014) discusses such networks’ range from moral obligation to high level corruption. Such inclusionary-exclusionary games are going on with the involvement of political power as well. Surya Nath Upadhyaya, former chief commissioner of Commission for the Investigation of Abuse of Authority, concludes on root of corruption that goes to the politics; “There is rampant corruption in the country, corruption is the main cause of political tug of war and political parties should be transparent and pure for good governance (p. 213). Such rampant corruption will certainly hamper in the mission to achieve post millennium development goal that is Sustainable Development Goal. In this alarming situation,


role of any television should not be ignored. Political leadership as well as leadership in the station also varies in spite of government boundaries, on the other hand. NTV journalists are professional like other media persons and can raise voice for editorial freedom. Creating working environment for the professional journalist is the main responsibility of the leadership of NTV. “Society itself should be educated, clever and aware if the corruption controlling bodies themselves won’t be honest”, former chairperson of Transparency International Nepal Shree Bhadra Sharma had suggested (Sharma, 1999, p.4).

Conclusion

Based on the respondents in tax offices we can conclude that NTV has contributed to some extent in good governance. The offices have changed working procedures and the open data system has reduced loopholes for anomalies. They feel positive impact of NTV. However, clients met in the transport management office were totally dissatisfied with the service delivery because there is open mediated bribery system for prompt service delivery. They take an example of CCTV surveillance destroyed to ease the corrupt officials and complained they could not watch the news on this issue on NTV. NTV should not treat TMZP similar to other offices because systemic and open bribery is rarely found in other public offices. In such situation, neither democracy nor justice can prevail. The study pointed out the rate of return of NTV for general public. It has been blamed to have focused on commercialization, entertainment and being leader centric. Regular investigative TV programs on good governance were demanded instead of occasional reporting. NTV can play the role of a catalyst in implementing Right to Information Act for transparent and corruption less Nepal as suggested by the people in the field and literature. According to them, though political corruption also affects priorities of the TV, its leadership can create environment for own role of journalistic activism as duty for good governance envisioned by the Nepal’s Constitution. Moreover, the station was brought into operation justifying the goal of “Development Oriented Television in Nepal”.


People were confident: NTV can make them “educated, clever and aware” on their public suffering through edutainment rather than the leaders’ speeches and profit oriented commercial entertainment.

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Role of Nepal Television in Addressing the Issues of Good Governance: An Empirical Analysis...

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