VALUING VOLUNTEERING - NEPAL

THE NATIONAL
DEVELOPMENT VOLUNTEER
SERVICE OF NEPAL
National government volunteers
and their impact on poverty alleviation:
a case study

2014
VSO at a glance
VSO is the world’s leading independent international development
organisation that works through volunteers to fight poverty in
developing countries.

VSO brings people together to share skills, build capabilities and

promote international understanding and action. We work with partner
organisations at every level of society, from government organisations
at a national level to health and education facilities at a local level.

IDS
The Institute of Development Studies (IDS) is a leading global organisation
for international development research, teaching and communications.
The Valuing Volunteering project is being conducted in partnership with
the IDS Participation, Power and Social Change Team.

The Valuing Volunteering research has also been made possible by the
generous contributions of Cuso International and Pears Foundation.

Credits
Text: Elizabeth Hacker
Research: Elizabeth Hacker
Editing: Katie Turner and Ken Moxham
Layout: marcomadruga.com
Cover photo: Willemijn van Kol
Photography: Willemijn van Kol, Elizabeth Hacker and Jyoti Shahi

Copyright
© Elizabeth Hacker, VSO Nepal and the Institute of Development Studies (IDS) 2014.
Unless indicated otherwise, any part of this publication may be reproduced without
permission for non-profit and educational purposes on the condition that Elizabeth
Hacker, VSO Nepal and IDS are acknowledged. Please send Jody Aked, VSO Bahaginan
and IDS a copy of any materials in which Elizabeth Hacker, VSO Nepal and IDS material
has been used. For any reproduction with commercial ends, permission must first be
obtained from Elizabeth Hacker, VSO Nepal and IDS.
Acknowledgements Abbreviations
Without the willingness of numerous participants and volunteers in CMA Community Medical Assistant
the research this work would not have been possible. The Valuing
Volunteering project appreciates everything you have taught us. We FCHV Female Community Health Volunteer
will use those insights to inform how people make use of volunteering
HDI Human Development Index
as a tool for development both in Nepal and globally.
MOGA Ministry of General Administration
Thanks goes to NDVS for their help and advice in the research and
their continued practical and logistical support. MoHP Ministry of Health and Population

Thank you to members of the National Inquiry Group for feeding back NDVS National Development Volunteer Service
on findings, and staff and volunteers at VSO Nepal for their support
and engagement at various stages of the project. NGO Non-Governmental Organisation

UNV United Nations Volunteers

The research would not have been possible without the contributions
of NDVS volunteers whose engagement and help with the process
was greatly appreciated.

4 Valuing Volunteering - Nepal

Contents
Executive summary 6

1 Introduction 8

2 Background 10

3 Methodology 12

4 How volunteers impact on poverty 15

5 How volunteers work with permanent staff 18

6 Volunteer wellbeing and motivation 22

7 Long-term impacts on marginalisation and exclusion 24

8 Sustainability and dependency – how do the volunteers affect the system 27

of service delivery in Nepal?

Reflections on the process 29

Conclusion 31

Key implications and recommendations 32

References 34

The National Development Volunteer Service of Nepal 5

Executive Summary
NDVS overview Key findings
This case study focuses on the National Development Volunteer How volunteers work
Service’s (NDVS) volunteer scheme. With the objective of assisting
in the achievement of the poverty reduction goals outlined in the Volunteers are to be found undertaking a variety of roles. Where it
Government of Nepal’s Tenth Five Year Plan, NDVS was established is difficult to recruit and retain permanent staff, they fill gaps. They
in February 1999 under the Secretariat of the Government of Nepal’s are also deployed to augment existing staff, often where a local
National Planning Commission. Having started with 220 volunteers team is facing difficult demands, and, in the absence of other staff,
in 20 districts, the coverage of this scheme has expanded to cover volunteers allow for posts (e.g. a health post) to reopen. There is
almost all districts of the country. Over 9,000 individuals have now also evidence of volunteers going beyond the normal expectations
served as volunteers in rural and remote regions of Nepal. of their designated role, e.g. undertaking more community outreach
work that extends the reach of services.
NDVS have been mobilising around 600 volunteers annually for
placements usually between one and two years in length, in the In the health sector particularly, given the shifting disease profile of
health, agricultural development, livestock services and engineering Nepal (from communicable to non-communicable disease), there is
sectors. Currently volunteers mobilised by NDVS are ‘technical’ potentially a bigger role for volunteers in terms of updating existing
volunteers, holding the relevant qualifications for the post recruited practices and learning in line with these shifts. This is currently not
for (as their permanent staff equivalents working in the public sector being fully realised, but, with specialist training and a greater focus
would). The vast majority of volunteers are currently mobilised in the on a capacity-building role, NDVS could be more intentional about
health sector, and here, qualified volunteers occupy a range of roles creating a resource for permanent staff to use given the disease
such as health assistants and auxiliary nurse midwives. transitions Nepal is facing.

NDVS’s main objective is to provide assistance in achieving the goal of

poverty reduction as outlined by the Government of Nepal in various Factors that affect volunteers’ effectiveness
periodic plans (National Planning Commission: www.npc.gov.np/
new/uploadedFiles/allFiles/typeng13.pdf). By supplying the various There is a great deal of variation in the quality of interaction
government and social institutions with the manpower required between volunteers and their permanent staff colleagues, which,
for the delivery of key services in the sectors outlined above, NDVS in turn, affected volunteers’ ability to impact on poverty. Some
aim to assist in improving the efficiency, effectiveness and reach of volunteers found that they had relatively little influence in the
services to all districts of Nepal, which will lead to economic and internal professional hierarchy. There is evidence that some
social development. volunteers’ impact could have been greater had they been given
more support and guidance from permanent staff colleagues. The
receptiveness and response of those the volunteer works alongside
is often crucial for them to be able to carry out their duties.
Volunteer organisations need to ensure that sufficient attention is
given to supporting the development of good working relationships
between volunteers and their colleagues.

Volunteer wellbeing and motivation

There is evidence that volunteers placed in the most remote regions

of Nepal require additional support in order to tackle the particular
challenges faced as a result of their placement. The realities of the
most remote districts – low but highly dispersed populations and low
levels of infrastructure – mean that in order to deliver key services
to the hardest to reach, volunteers had to travel long distances,
which could lead to additional expenditure that was not always taken
into account. There were also implications for their wellbeing, with
an additional burden sometimes placed on family members. For
example, with volunteers often absent for long periods (three months
or more), childcare responsibilities were placed in full on spouses
or the extended family. Differences in the quality and difficulty of
volunteer experience need to be recognised and taken into account.

6 Valuing Volunteering - Nepal

Long-term impact on marginalisation

In terms of its ethnic and gender make-up, through implementing a

reservation policy, NDVS is making steps towards becoming a positive
model of inclusion (e.g. 47% of current NDVS volunteers are female).
Although the visibility of this is diluted because of the deployment of
volunteers across Nepal, there is evidence this has a positive impact
on the volunteers involved in the scheme. The inclusive policies of
NDVS could also have long-term benefits in terms of the composition
of the workforce given that many volunteers may eventually become
public servants. This somewhat unintended impact should not be
overstated – further effort is required to promote gender equality in
each of the sectors volunteers are recruited for (rather than relying
on the domains that traditionally attract a higher proportion of
females, notably health, to reach gender parity). Furthermore, in
order to further capitalise on the gains of the reservation policy, NDVS
need to ensure that opportunities for volunteers from marginalised
groups can be better realised.

If NDVS can create and encourage an inclusive environment in practice,

and focus on building the capabilities of those from traditionally
excluded groups, this could help volunteers in their placements and
also help them to translate their experience into positive future
outcomes (e.g. obtaining the necessary qualifications, skills and
experience to progress to a permanent position in the public sector).

Sustainability and dependency

NDVS was originally established to meet short-term manpower
needs in remote communities. A major constraint on development
in Nepal remains the shortage of technical manpower in rural
locations. The deployment of national volunteers can help to supply
the necessary manpower in the short term. However, it is important
to note that without tackling underlying issues affecting the public
sector, such as absenteeism and a market of transfers which makes
it difficult to place permanent staff in remote locations, the scheme
serves to satisfy a resource gap which will continue to challenge
Nepal’s system of service delivery.

The National Development Volunteer Service of Nepal 7

1. Introduction
Why NDVS? NDVS’s pathway of change
Since 1999 the National Development Volunteer Service (NDVS), a NDVS’s main objective is to provide assistance in achieving the
secretariat of the National Planning Commission (the government goal of poverty reduction as outlined by the Government of Nepal.
body responsible for formulating the development plans and policies By supplying the various government and social institutions with
of the country), has been assisting the Government of Nepal in the the additional manpower required for the delivery of key services
poverty reduction goals outlined in the Tenth Five Year Plan (NDVS, in the sectors outlined above, NDVS aims to assist in improving
2013). Since then, over 9,000 volunteers have been recruited in the the efficiency, effectiveness and reach of services to all districts of
effort to further the social and economic development of Nepal. Nepal, which will lead to economic and social development. In this
sense, NDVS provide complementary manpower to that used by
With NDVS’s primary role to assist the Government of Nepal in line ministries, and are therefore part of a much larger overarching
tackling poverty, and Valuing Volunteering’s rationale to investigate theory of change held and directed by the Government of Nepal.
how, when and why volunteering impacts on poverty, it was crucial
that the contribution of government-led volunteer schemes formed NDVS’s second objective is to increase employment for young
part of the research. Furthermore, because NDVS were the in- people who meet normal selection criteria for government service
country partner for the Valuing Volunteering Nepal project, there and who are committed to nation building, providing them with the
were opportunities for close collaboration. opportunity to assist in rural and local development works.

Currently, NDVS deploy around 600 technical volunteers annually Finally, there is an objective to align Nepal’s development with the
in the health, agricultural development, livestock services and spirit of volunteerism – by mobilising volunteers who are a visual
engineering sectors, and these volunteers are placed across Nepal, in and literal embodiment of the ‘spirit of volunteerism’ (i.e. they have
73 of its 75 districts. While a geographically based case study would made a sacrifice to volunteer for one or two years, often in remote
be difficult due to the wide dispersal of volunteers both across Nepal areas). The intention is that awareness of the attributes and benefits
and in the most remote areas of each district, there was opportunity of volunteering will be raised both among the government and
to interact with, and learn from the experiences of, the volunteers social institutions within which they work and in the communities
and officials engaged in the scheme, and to gain insights into their in which they serve. At the same time, NDVS promote volunteerism
perceptions of volunteering and its impact on Nepal’s development. as an organisation through various programmes and events (e.g.
promotion of International Volunteer Day and conducting seminars
in schools about the value of volunteering) to sensitise the nation to
the benefits of volunteerism.

Figure 1. Promoting volunteerism in a school in the east of Nepal

8 Valuing Volunteering - Nepal

Valuing Volunteering and the NDVS In terms of the goal of promoting volunteerism – how is this
theory of change translated into long-term gains for development? Are volunteers and
the organisation an effective vehicle for promoting volunteerism and
Valuing Volunteering Nepal’s key questions were about NDVS’s what are the implications of this? Can the existence of the scheme
role in assisting the delivery of public services: whether and how challenge existing perceptions about volunteering, of the civil service
NDVS assisted the government and service sector in meeting and of ideas about ‘the nation’ and its development more widely?
poverty reduction goals. It was beyond the scope of this research to
interrogate the overarching theories of change in terms of whether Finally, the research was interested in the impacts on the
and how the government of Nepal’s objectives and goals would volunteers. For example, how did the scheme negotiate some
effectively lead to poverty alleviation and national development. of the exclusionary tendencies of prevalent cultural norms in
The focus of this study was on how and whether NDVS facilitated Nepali society? How inclusive was the scheme, both in terms of
this overarching theory of change. The study was also interested in the organisation’s discourse and operating procedures, and the
exploring any unintended consequences of the national volunteering implementation at community level? Given the scale and scope
scheme at various levels. of NDVS’s remit, and the diversity and geographical spread of the
human resources at its disposal, a key question for the research
The research firstly looked at how effective the volunteers were was how placements were experienced by different volunteers.
in assisting the delivery of services, and the factors that affected Were some volunteers more likely to have fulfilling roles which
this. How were they impacting at the community level and were could lead to improved future opportunities (e.g. employment
volunteers delivering services in a different way to permanent staff in the government services), whilst others were faced with more
(i.e. is there a particular value or benefit in using volunteers in terms challenging circumstances, affecting the extent to which they could
of service delivery?)? What was the interrelationship between the capitalise on the volunteering experience?
volunteers and the permanent staff whom they worked alongside,
and what factors affect this? How did these relationships affect the
volunteers’ objectives and impact?

The research was also interested in the longer-term implications

of the scheme, as well as looking at the service delivery gains
themselves. For example, does the scheme affect the overall culture
and social composition of government services? Are there underlying
reasons why volunteers are needed as a continuous resource?

The National Development Volunteer Service of Nepal 9

 2. Background
Overview Who volunteers?
With the objective of assisting in the achievement of the poverty The scheme is open to individuals with the appropriate educational
reduction goals outlined in the Government of Nepal’s Tenth Five and vocational qualification required for the post. Each occupational
Year Plan, the National Development Volunteer Service (NDVS) was family (e.g. health, engineering, agricultural development) covers a
established in February 1999 under the Secretariat of the National range of positions that require different qualifications and educational
Planning Commission. Having started with 220 volunteers in 20 levels: for example, within the health sector, there are positions for
districts, now the coverage of this service has reached almost all auxiliary nursing midwives (ANMs), health assistants and certified
districts of the country. Up until fiscal year 2011/12, 8,890 individuals medical assistants for those with the relevant qualifications.
had served as volunteers in rural and remote regions of the country.
As a result, within the scheme there is a range of qualifications held
Since it was established, NDVS has been mobilising volunteers for by volunteers, with some having achieved a Masters degree, and
placements usually between one and two years in length, as well as others holding a School Leavers Certificate (GCSE equivalent) only.
running various focused programmes. NDVS has also coordinated Typically, volunteers are newly qualified in their field and may have
a range of activities and programmes that promote volunteerism, had little prior experience.
working with a variety of national and international voluntary
organisations to implement these. Almost 7,000 applications for fewer than 600 places were received in
2012. This reflects the high demand for government service careers
in a country where opportunities for qualified and educated young
Mobilisation and recruitment people are limited (particularly given the underdevelopment of
the private sector). A meritocratic system is in place, although this
Currently, volunteers are mobilised on the basis of demand from the is modified by a quota system to enable increased representation
concerned line offices (e.g. health). Volunteers for different roles of groups that have traditionally not been included in government
are mobilised from the health, agricultural development, livestock services. Like other civil service departments in Nepal, the scheme is
services and engineering sectors for placements of between one and required to adhere to a reservation system whereby 45% of places are
two years. In fiscal year 2012/13, 589 volunteers for various roles reserved for women, ethnic minorities, regional and disabled people.
and professions were mobilised in different government institutions This aims to ensure that the scheme reflects the overall ethnic
in 72 districts. and gender make-up of Nepal. In 2012/13, there were 310 male
volunteers deployed and 279 females. Figure 3 shows the percentage
At present the majority of volunteers are mobilised to volunteer in of volunteers in terms of inclusion (note that ‘others’ in this context
the health sector: refers to the groups described as high Hindu castes, i.e. Brahman and
Chhetri). Categorisation discrepancies make exact comparisons with
the composition of the total population of Nepal difficult. However,
Figure 2. Subject areas of volunteers mobilised 2012–13. as an example, just over 30% of the population of Nepal are Janajati
Source: NDVS (ethnic groups of Nepal), while 26% of NDVS volunteers are included
in the category ‘ethnicities’ (Bennett et al, 2006).
450
400
350
Figure 3. The percentage of volunteers by ethnicity.
Source: NDVS
300
250
Ethnicities
200 26%
150
100
Number

50
0
Others
sector
Sector

Livestock
services
sector

sector
Health

Agricultural
development

Engineering

Education

56% Madhesis
10%

Subject Areas Dalits

7%
Muslims
1%

10 Valuing Volunteering - Nepal

What do they do? The NDVS scheme in context
The functional responsibility of volunteers is to perform their role Public service delivery
as stipulated in the terms of reference pertaining to their particular
professional sector. In addition, they are tasked with raising The deployment and retention of essential health workers and other
awareness of volunteering in the community and workplace, and key service workers is a long-standing problem in rural and remote
have a more general community outreach role, e.g. to assist with areas. For example, Harris et al argue that while “spatial inequalities
programmes that support the ‘empowerment of individuals’ and to in Nepal are overlaid on a complex web of ethnic and caste
facilitate the formation of groups for public betterment. distinctions that have been associated with forms of exclusion in a
number of dimensions (social, economic etc.), the spatial dimension
retains importance”, with geographic factors, namely, remoteness
Where are they deployed? and terrain, a key determinant of access to health services and
health outcomes (Harris et al, 2013).
The number of volunteers deployed per district is dependent on
its Human Development Index (HDI): for example, Mugu, a district Problems of difficult terrain can be exacerbated by the poor
with a low HDI, was allocated 14 volunteers in 2012, whereas Kavre, management of already inadequate infrastructure (Asia Foundation,
a district with a higher HDI located near Kathmandu, was allocated 2012). To take the health sector as an example, problems of
7 volunteers. Volunteers are deployed by the relevant line offices maldistribution of health workers, absenteeism and ineffective
and district development committee on the basis of need. As such, skill mixes persist, maintained by high levels of politicisation of the
volunteers are usually placed in the more remote areas of districts civil service, and irregularities including favouritism, nepotism and
due to the persistence of low ratios of skilled personnel per head of rent seeking which easily and often undermine the formal systems
population (Harris et al, 2013). in place (Harris et al, 2013). Furthermore, there are issues around
health workers having a conflict of interest, with the practice of
The majority of volunteers are placed in their resident district, but owning either private clinics or medical stores, or working for for-
some have to stay away from their homes. In the districts with profit institutions, common amongst practitioners (Asia Foundation,
lowest-ranking HDI scores (mountain districts such as Mugu, Humla, 2012). The consequence is a growing level of distrust of the state as
Bajura), deploying domiciled volunteers to work in their home provider of the basic human right of health (Asia Foundation, 2012).
district was prioritised to help mitigate issues around absenteeism
and the early cessation of placements. This policy of positive
discrimination may have implications for the quality of the human Volunteering context
resources deployed, particularly as the calibre of applicants varies
depending on the educational opportunities available across Nepal. The practice of volunteerism (swaymsaybak – ‘self-service’) is
deeply rooted in Nepalese society. Looking at traditional forms
of volunteering, community-based tasks have been performed in
Stipends Nepal for centuries. However, formal volunteering is a relatively
new phenomenon in Nepal, dating from the 1990s when the end
Volunteer stipends vary according to a volunteer’s skill level and of absolute monarchy in 1991 brought about a sudden influx of
the remoteness of their post. For example, a volunteer working in funding from the international community, eager to endorse the
a remote district receives an allowance of around $100 per month, achievement of constitutional democracy. This in turn led to the
about $20 more than a volunteer working in a less remote district. rapid growth of non-governmental organisations (NGOs) (from 372
This equates to roughly half the basic salary of a permanent staff to almost 10,000 between 1990 and 1999), and the expansion of
member in the equivalent role. However, permanent staff members formal volunteering opportunities, with NGOs needing volunteers to
receive additional allowances and facilities (e.g. clothing allowance, implement projects at the grass-roots level (Aditya, 2002).
study leave, travel allowance). Generally, this allowance is sufficient
to cover basic living expenses, particularly if the volunteer is able to During this period, the nature of volunteer work changed in that it
live in their familial home. Because of limited formal employment became more secular, technical, professional and developmental
opportunities in many districts, the allowance means that the (Aditya, 2002). There are mixed perceptions of national volunteers
scheme could be seen by some volunteers as a form of employment. in Nepal – the motives of so-called ‘moneyed’ volunteers (volunteers
The two-year limit on placements mitigates this to an extent. who receive a stipend) are sometimes questioned, partly because
of the monetary and sometimes political gains that can be had
from volunteer opportunities. Because of the high levels of youth
unemployment in Nepal, and the number of relatively young
international and national volunteers, volunteering can also be
associated with being unemployed and inexperienced.

The National Development Volunteer Service of Nepal 11

3. Methodology
The Valuing Volunteering project used two research approaches to
collect and analyse insights about volunteering; Participatory Systemic
Inquiries (PSI) and Participatory Systemic Action Research (PSAR).
Both of these approaches enable us to get under the surface of how
communities operate and how change happens.

Participatory Systemic Inquiries (PSI) allow a system of actors, actions The Nepal research
and contexts to be mapped as a baseline against which change can
be assessed (Burns 2012). When identifying the starting points (our The inquiry began in June 2012. NDVS were the host organisation
baseline) for a project we might typically record those factors that for Valuing Volunteering Nepal. NDVS’s scope and remit made it an
have an obvious direct relation to our intervention. For example, important institution to include in the research.
if our aim is to increase girls’ access to education, a ‘traditional’
baseline might record factors such as school enrolment, attendance A broad generic inquiry began in June 2012 with discussions with
and participation. PSI allows us to go deeper and reflect on how NDVS project officers and United Nations Volunteers (UNV) officers
people, processes and the environment that they are situated within who were also at the time working with NDVS. Two large-scale
influence one another and the path to change. Doing this involves programme and policy evaluation events in June and July 2012
asking both broad and detailed questions which take us beyond the provided the opportunity to speak with public servants, volunteers
school walls and into the complexities of social systems such as, ‘Are and programme officers and gain early insights into experiences at
girls’ supported by their family and the wider community to attend local level. To obtain a range of perspectives, as part of the generic
school?’ ‘What are the power dynamics within the community and inquiry, interviews were also conducted with key stakeholders in the
how might these influence girls’ attendance in school?’ national volunteering sector outside of NDVS – e.g. members of the
taskforce who are drafting a national policy on volunteering. This
This data is then used to determine how different factors affect initial inquiry gave insights into the work that the scheme did, the key
one another, with the aim of learning about why change is or is not issues volunteers faced in their placements and the challenges facing
happening. While causal links between each part of a system can be the volunteer sector in Nepal.
identified, they are frequently not linear relationships. By allowing
us to observe volunteer practices as part of a wider system rather This was followed by a more focused inquiry regarding the
than in isolation, PSI challenges our assumption that if we do x it will perspectives of volunteers and their counterparts in September/
automatically lead to y and forces us to consider each intervention October 2012. While a geographically based case study would be
within the context in which it is taking place. For example, difficult due to the wide dispersal of volunteers both across Nepal
strengthening our understanding of the factors that impact on and in the most remote areas of each district, it was still important
people’s perceptions of volunteering was important in some inquiries to look at NDVS volunteers as part of the ecosystem of volunteering
to make sense of volunteers’ effectiveness. A PSI mapping and and how they related to the work of other volunteers in a specific
analysis might take place over a 2–12-week period and can involve context. Therefore, NDVS volunteers were initially included in Valuing
working with many different individuals and groups. In the Valuing Volunteering Nepal’s investigation into education and volunteering in
Volunteering project we ran many different PSIs at the community, one district in the far west of Nepal. The education inquiry focused
organizational and national levels. Where actors were motivated to primarily on international volunteers, but including national and local
respond to emergent findings, PSI formed the beginning of an action volunteers in the initial stages gave insights into the different types
research process. of volunteer working in one locality, and how or whether there were
(or could be) connections between different volunteers and volunteer
Participatory Systemic Action Research (PSAR) is an action research organisations. NDVS volunteers were also included in a similar inquiry
methodology which embeds reflection, planning, action and in a hill district in the mid-west of Nepal.
evaluation into a single process. The core principle behind action
research is that we learn as much if not more from action than However, there were a limited number of accessible volunteers in
from analysis. It incorporates iterative cycles of action and analysis, the district in which the education inquiry was based. In order to
allowing us to reflect at intervals on a particular action or approach understand the scheme and gain deeper insights into questions such
and adapting it according to what we’ve learnt. The action research as how experiences differ depending on the role and location of
used by Valuing Volunteering was participatory because it was led volunteers, the inquiry needed to be broadened to include a greater
by individuals directly affected by or involved in volunteering for number of volunteers from different regions. In spring/summer
development initiatives, and they defined the action research process 2013 this inquiry included: accompaniment on volunteer exchange
and questions. It was systemic because we assessed the impact of programmes in the Bheri and Rapti zones in the mid-west of Nepal,
these actions by considering the knock-on effects for the actors, and the Mechi zone in the east of Nepal; visits to the placements
actions and contexts comprising the wider social system. SAR typically of volunteers and meeting with counterparts in five districts within
takes place over a period of 18 months to three years. these zones; attending volunteer trainings; speaking informally

12 Valuing Volunteering - Nepal

 Nepal
Political map

2
China
Far West (Tibet)
3
1
Dipayal
Districts: Midwest
1 - Mahakali Surkhet
2 - Seti 6
4 Pokhara
3 - Karnali 5 7
4 - Bheri Mt Everest
West 9
5 - Rapti
6 - Dhaulagiri 8 Kathmandu
7 - Gandaki Central 13
8 - Lumbini 10
9 - Bagmati 11
12 East
10 - Narayani 14
11 - Janakpur
Biratnagar
12 - Sagarmatha India
13 - Koshi
14 - Mechi

with volunteers and their permanent staff colleagues; one-to-one Figure 4. An NDVS evaluation and training
interviews with volunteers; focus group discussions with volunteers
from different sectors (health, agricultural development, engineering,
livestock services) working in over ten districts covering the
mountain, hill and Terai (planes) geographical zones; and continued
discussions with NDVS colleagues. Over 50 volunteers from more
than ten districts in the far west, mid-west, west and eastern regions
of Nepal were included in the inquiry. Four days spent with volunteers
from the Karnali zone – the most remote mountain/hill zone of Nepal,
gave particular insights into the challenges of volunteering in the
hardest-to-reach areas.

The main emphasis of the study is the perceptions and experiences

of the volunteers. However, the views of permanent staff members
were gathered wherever possible during site visits, and these
inputs also provide useful insights, sometimes giving a different
or competing perspective. A follow-up study focusing on other
stakeholders that gives equivalent breadth and depth of coverage
would be worthwhile.

A digital storytelling workshop was planned with volunteers in order

to show the realities of volunteering in remote districts, and to enable
volunteers to reflect on their experiences. Due to time constraints at
the end of the research project, this workshop could not be realised.
Instead, a digital story was created with a volunteer who had been
based in the Karnali zone but was now living in Kathmandu1. This
digital story could then be added to the stories of local volunteers
that were collected during the Valuing Volunteering Nepal
education inquiry workshop in Dhangadhi, broadening the picture of
volunteering in Nepal. In addition, a member of NDVS staff assisted
the education inquiry digital storytelling workshop in the far west of
Nepal so that NDVS held knowledge of this method. A follow-up study
that uses digital storytelling to capture a range of experiences from
different regions of Nepal may be worthwhile.

1. www.youtube.com/watch?v=Z6AGo-Agx8U

The National Development Volunteer Service of Nepal 13

Figure 5. Timeline of NDVS inquiry

Initial broad inquiry NDVS local inquiry

Purpose: To gain insights into the Purpose: To gain insights into the ecosystem
volunteer sector, and general information of volunteering at local level. To visit
about and views of the NDVS scheme volunteers & counterparts at their workplace.
Methods: one-to-one interviews, Methods: one-to-one interviews with
informal discussions, observations, volunteers & counterparts, observations
mapping of issues, literature review of workplaces.
Locations: Pokhara, Kathmandu, Chitwan Location: Kailali, Far West

January June September

2012

NDVS digital storytelling

Purpose: To allow for a more in-depth reflection
on volunteering experiences, to capacity build
NDVS staff member in the method, to produce
outputs that allowed a range of audiences access
to the findings.
Method: digital storytelling
Location: Kathmandu

January March
2013

NDVS in-depth inquiry

Purpose: To gain in-depth insights into
volunteers’ experience of volunteering in
NDVS local inquiry
a variety of sectors and locations in Nepal.
Purpose: To validate findings from in-depth
Methods: informal discussions,
inquiry with volunteers at local level
observations, focus group discussions,
site visits. Methods: One-to-one interviews
Locations: Mid-West, Eastern Dev. Regions Location: Mid-Western Dev Region

January April September

2014

14 Valuing Volunteering - Nepal

4. How volunteers impact on poverty
On average, 600 NDVS volunteers are mobilised per year.
This chapter looks at the way they work, their impacts in the long and
short term, and asks whether there is added value in using volunteers
in the provision of key services.
Supporting existing services A different way of working?
NDVS volunteers support existing services and allow permanent A strong theme that emerged from the inquiry was that many
staff members to deliver services more efficiently and effectively volunteers felt that the fact that they were volunteers affected their
to a greater number of service-users. For example, in one hospital ways of working. Firstly, some volunteers felt their motivation and
visited in the Far Western region, the NDVS volunteer worked in an commitment was often different. The reasons for this were various,
emergency room where she provided initial care for patients. but particularly in the most remote districts (where priority is given
to domiciled applicants), the sense that they were volunteering for
“The hospital is a very crowded place so when I work there, it their own community was very strong. This, combined with a sense
frees up the other staff. There is not such a big queue for health of responsibility about being a volunteer and part of a broader
care. There is lots of need for volunteers, because the level of volunteering movement, was highly motivating for some:
work is so high.”
NDVS volunteer “First thing is that it is our birthplace. Also that we know each
other and there is a good atmosphere/feeling (e.g. among the
The doctor working in the emergency echoed these sentiments: volunteers in trainings) this also motivates us.”
the volunteer allowed him to see more patients in a setting where NDVS volunteer
demand is continuously high. At a health post in eastern Nepal, the
health clinician in-charge explained what the value of volunteers
was to him: “I’ve changed in my thoughts about volunteering. At first I
didn’t know about it. Now I have the idea that it is about
“Volunteers relieve my workload and mean that I can do more selfless volunteering. The thinking is good. Because others are
work and take more time with patients... the workload is very concerned about money.”
high so the volunteer enables people to be seen. The volunteer NDVS volunteer
is hardworking, active and timely. I needed help because I was
so stretched, so asked for a volunteer.” There was also a sense that at the beginning of their careers, the
Community Medical Assistant, health post scheme was an opportunity for volunteers to prove themselves and
gain experience:
In this sense, in posts where volunteers work alongside active
permanent staff members, there is little to distinguish volunteers “I am getting something, a small amount of money, the people
from their paid colleagues. Volunteers allow for the short-term of the community know me, I have some kind of prestige
benefits of providing more care, more efficiently at that time: working with the public sector. And this motivates me.”
NDVS volunteer
“The community don’t know that he’s a volunteer, they think
that he is staff. He is no different from other paid staff, he does
the same kind of work.” “For me, I think that I got the opportunity to use my skills. If I
CMA, health post wasn’t a volunteer I wouldn’t be able to use that skill.”
NDVS volunteer
It can also be an efficient way of ensuring an effective ‘skill mix’ which
can be difficult, particularly in remote areas (Harris et al, 2013). For This is not to claim that all volunteers are highly motivated; as
example, the junior nurse in the hospital in the far west freed up with other volunteer schemes, there are issues around volunteer
the time of more experienced nurses and doctors to deal with more motivation which NDVS have been trying hard to address. Whether
severe cases. an individual is a volunteer or a permanent member of staff, what
drives their motivation will depend on a whole variety of factors.
Some motivating factors are more intrinsic to volunteering, e.g.
the relatively short-term nature of posts; the connections to the
community many volunteers have; the eagerness of relatively
inexperienced volunteers to gain new skills and apply their training;
and an appreciation of the values of volunteerism (particularly given
NDVS inductions which highlight the importance of volunteering to
Nepal’s history and future development).

The National Development Volunteer Service of Nepal 15

Connections with the community Interestingly, this reflects findings from Valuing Volunteering’s inquiry
into education and volunteering, whereby international volunteers’
Volunteers usually work in remote areas for an extended period, role encompassed much more than capacity-building counterpart
many located in posts that are distant from their familial home teachers with new teaching methodologies (i.e. technical skills).
even if they are working in their own district. This puts them in a
position where they may be more able or more motivated to extend Even if volunteers were not from the particular community they were
services both geographically and in terms of time. For example, in posted in, they were able to build relationships because they lived in
her digital story, one volunteer describes how she would remain close proximity to community members – often needing their help to
at the remote health post during holiday periods and at weekends get by when living alone in a new and isolated environment:
when permanent staff would travel to their homes in the district
centre. The volunteer was unable to do so because of the prohibitive “At first they didn’t trust me. But after interacting with them and
cost and duration of travel to her home district. Furthermore, attending these (local) events they started to trust me and to
volunteers have less access to trainings; given that participation be more open. It was helpful being in the community because
in study and training programmes has been identified as a major they started to know I was a volunteer. When I started, the
cause of absenteeism, along with annual leave entitlements, this community didn’t know the difficulties I faced but afterwards,
is significant (Harris et al, 2013)2. One volunteer living in a remote they would bring me vegetables and curries and things.”
district explains: NDVS volunteer

“The person in charge, most of the time they take advantage of There have been many studies looking at how the social
any opportunities, for example, they request to go to trainings. embeddedness of workers affects their motivation to provide good
But we (volunteers) never can.” service. Where there is a social relationship between patient and
NDVS volunteer service provider, care can be more empathetic (Franco et al, 2002).
The closeness of volunteers to the communities in which they work –
This embeddedness can allow volunteers to provide services either because of pre-existing connections (e.g. they are volunteering
consistently: indeed several volunteers spoke of the emergency in their own district) or because of the different working conditions
treatment provided during holiday periods which would otherwise of volunteers – helps to foster social relationships which can be
have been unavailable. In her digital story, the volunteer describes important for the delivery of high-quality care.
how she attended to an emergency patient using a satellite call to a
senior nurse in the district centre. It was during festival time when all
the permanent staff had left the birthing centre. Freedom to work with the community
In addition, their embeddedness, allowed volunteers to work Volunteers are in a sense ‘outsiders’ to the government’s system of
proactively – e.g. increasing community outreach work. One volunteer service delivery – they are not permanent staff members so may be
explained that because she had few friends and no relatives to visit, at spared some of the bureaucratic constraints that their colleagues
weekends she would visit remote communities to inform them about face. Interestingly, some volunteers felt that this gave them a
the importance of hand-washing, the causes of diarrhoea and to teach degree of freedom to deliver services more quickly and effectively.
parents to conduct basic sanitary procedures such as nail cutting. A A health assistant describes how the freedom from administrative
female volunteer working in the agricultural sector explains: burden facilitated the undertaking of community outreach and
emergency healthcare:
“Volunteers usually work pro-actively, visiting communities and
farmers to let them know what is happening in the agricultural “If there is an emergency, or someone has to go to a remote
sector. But government staff don’t work in that way, they just village, then the volunteer will go. Because I feel more freedom
work reactively. So that is the difference.” to do this, for example, I don’t have to record it in the same way,
NDVS volunteer I can just inform another senior staff member.”
NDVS volunteer, health sector
Some volunteers interpreted their role as being much broader than
their permanent staff colleagues’. Their stories reflect an idea that
volunteerism goes beyond the delivery of professional or technical skills:
Extending the reach of existing services
“Supervisors supervise the project only. They don’t go anywhere,
they don’t talk, sometimes they talk... but they go there and Volunteers play an important role in extending the reach of services.
supervise the project only. They aren’t interested about the Many volunteers spoke of working in areas where there were no
village, only about their project, how quick it’s finished. Only!… permanent staff posted, or where permanent staff were not in
But I’m a volunteer, so I should talk… Volunteers have to go (to attendance, meaning that without them there would be no provision
the community) and help solve their problems.” of services. Particularly in the Karnali region, the remotest region of
NDVS volunteer, engineer Nepal, volunteers felt that they were the main service providers:

“I’m the only volunteer in the area, no one else is there. I have
to look after nine places. There aren’t any permanent staff
working alongside me.”
NDVS volunteer

2. Additional annual leave entitlements given under the Health Service Regulation 1999 (last amendment 2012) are also likely play a role, including:
30 days of home leave; 12 days of sick leave; and 12 days of casual/festival leave (excluding leave for Dashain and Tihar, which is additional) (SOLID, 2012)

16 Valuing Volunteering - Nepal

A particular problem is obtaining the right ‘skill mix’ of staff in remote She then described how she had changed antenatal practices at the
areas. For example, two-thirds of health staff live in Kathmandu or clinic. Another volunteer described how working with the community
other cities, leaving rural areas under-staffed (Shrestha and Bhandari, can help realise new ideas:
2013). In the absence of a suitably qualified permanent staff member,
volunteers who meet the criteria for the post have taken on roles in “Prior to my posting there were problems relating to
remote locations where there would otherwise be a gap. In some vaccination. All children have to be reported to the service
circumstances, the volunteer may be the most qualified practitioner, centre. But some parents didn’t manage to do that because of
with permanent staff in subordinate roles by default. Although the geography, rainy season and so on. So I decided to make a
volunteers may not have as much experience as their permanent staff mid-point somewhere between the FCHV (community health
counterparts, they are qualified, and using volunteers in this way can volunteer) and the community. I made a mid-point so that they
go some way to mitigating gaps in provision. On visiting one rural can now more easily come.”
health post, the volunteer and official explained the huge difficulties NDVS volunteer, health
of ensuring services are delivered in hard-to-reach areas:
Thus, there is the potential for an enthusiastic and recently qualified
“Previously this remote health post had been closed because volunteer to make a valuable contribution to the existing service
there was no one to run it. Now it is run by the volunteer provision. This potential is of course affected by both the quality of
with two junior health workers. their interaction with staff and, indeed, whether there are permanent
The volunteer is in charge of the health post because before staff members working alongside them. Nevertheless, the short-
it was closed. The CMA volunteer is [de facto] in charge of term nature of volunteering has the potential to refresh and update
the health post.” existing knowledge and working practices.
Anonymous

This does raise issues around the level of responsibility that Conclusion
volunteers are sometimes required to assume, and around the
underlying causes of maldistribution and absenteeism (these will be There is evidence of volunteers taking on a variety of roles which, in
discussed in chapter 8). Nevertheless, volunteers’ impact here can be the short term, enable services to be delivered more efficiently and
crucial and allows a greater number of people to access services. effectively. There is also evidence of volunteers interpreting their role
differently and more broadly than if their position were permanent,
for example, including more community outreach work that extends
Up-to-date knowledge, information the reach of services.
and new ideas
In the health sector particularly, given the shifting disease profile
While many volunteers did not see that their role was to change of Nepal, there is perhaps a bigger role for volunteers in terms of
or update existing practices, and some volunteers felt they were updating existing practices and learning in line with these shifts.
unable to do this because of their relationship with permanent staff This is currently not being fully realised, but with specialist training
(discussed in chapter 5), there were incidences where volunteers had and a greater focus on a capacity-building role, NDVS could be more
updated the practices of permanent staff. This can be a particularly intentional about creating a resource for permanent staff to use given
important function in remote areas, where training standards may be the disease transitions Nepal is facing. In this sense, volunteers could
lower and, importantly, the skills of those serving may not have been be seen more as a taskforce with a certain set of skills that are easily
updated in line with changing trends and technological advances. In and quickly deployed to fill skill and knowledge gaps and ensure
the health sector for example, the epidemiological profile of Nepal that the right mix of workers are available. There are barriers to skill
has rapidly changed in the last two decades. There are now an sharing as will be discussed below, but perhaps having a greater focus
increasing number of deaths from non-communicable diseases, but on volunteers’ unique assets could overcome these.
at the same time, in certain areas, increases in sexually transmitted
diseases due to changing migration patterns (Shrestha and Bhandari,
2013; Vaidya and Wu, 2011). One volunteer described how she was Implications
able to update staff members in a remote district regarding sexually
transmitted diseases because she had specialist knowledge from • Relieving the workload of permanent staff can enable more
previous work with NGOs in Kathmandu. Another health volunteer efficient and effective delivery of services to community members.
felt that at her health post: • Because of the different working and living conditions, and perhaps
the different motivations of volunteers, the reach of service delivery
“Permanent staff do not have up to date abilities. Volunteers can be extended to a greater number of community members.
have fresh knowledge and skills with which they can serve the • Volunteers give the opportunity to secure the right ‘skill mixes’ in
community volunteers better.” service delivery. This can be effective both in terms of the quality
NDVS volunteer, health and range of services provided to the community, and also the
access to services (i.e. posts can be opened).
• Securing the right ‘skill mix’ may have implications in terms of the
level of responsibility that volunteers are expected to assume.
• Volunteers could be a potentially useful resource to update
permanent staff’s knowledge and training. This has implications in
terms of training and raises questions about whether this would be
possible, given volunteers’ relatively low position in the hierarchy
(as perceived by some permanent staff). There could potentially be
collaborations with international volunteers/volunteer organisations
in terms of changing the image and expertise of volunteers.

The National Development Volunteer Service of Nepal 17

5. How volunteers work with permanent staff
This chapter looks at how volunteers’ impact was affected by their
relationship with the existing system of service delivery, i.e. the
permanent staff they work alongside. Understanding what affects the
quality of the interaction between permanent staff and volunteers
is complex. It is dependent on factors ranging from: the volunteer’s
ascribed role; their ‘NDVS volunteer’ identity; their qualifications, skills
and capabilities relating to their professional discipline; individual
characteristics such as their gender, caste and ethnicity; and the
personal resources they are able to draw on (personality, strength,
intelligence). How permanent staff react and respond to the volunteer,
in turn, depends on their own identities, roles and characteristics in
relation to the volunteer’s.

With such a large volunteer force, distributed widely across the Many volunteers who held a superior position in the work-based
country, working in a variety of professional settings and varied hierarchy (because of their role and qualifications), felt they were
roles, achieving anything approaching consistency in terms of able to share knowledge and improve existing practices. For example,
quality and output is challenging. The experience of the individual despite being an ‘outsider’ to the community and the local system of
volunteer will vary from place to place, reflecting the history, government, one volunteer from a traditionally marginalised ethnic
organisational culture and social dynamics of the setting where group, working in the Himalaya, describes his work:
they are assigned. The role and personality mix is important to
appreciate. Whilst further inquiry into how different aspects of “I work in the Himalaya but I’m from the Terai. It was not
volunteer and permanent staff identity (particularly gender and difficult to gain the respect of the Sherpa people I work with
caste) affect the quality of the interaction would be beneficial, this because I give them knowledge. I go to the sites frequently with
research focuses on how the way volunteers and staff relate to each them to supervise road building…”
other affects volunteers’ impact, revealing patterns and issues that NDVS volunteer
can be usefully addressed in planning for improvement.
For some volunteers, their role and resulting position in the hierarchy
(e.g. as the most senior health worker at a post) led them to adopt an
Working with permanent staff to improve instructional role. Other volunteers felt able to suggest improvements
service delivery to existing practices, despite their more junior role. For some, actually
being a volunteer gave them the leverage and relative freedom (as
There were examples where volunteers were integrated into the an ‘outsider’ to the system) to provide an extended professional
team of existing permanent staff and their position in the work-based contribution, suggesting changes to staff practices if they felt they
hierarchy accepted in accordance with their ascribed professional could be improved. In the example below, the volunteer, despite
role. In some cases, being integrated and respected by permanent being junior to her colleagues, appealed to staff directly, highlighting
staff members provided opportunities either to directly share skills her status as volunteer:
and knowledge, or for certain behaviours to be observed, reflected on
and adopted. “Sometimes the permanent staff don’t come on time. I say to
them, “Even though I’m a volunteer, I come at the right time.
You are the seniors but you aren’t here on time. It’s not good.
The patients need you.” When I said this, they came afterwards.
Because of me a lot of change has taken place in my work. Now
we clean more, change the dressings.”
NDVS volunteer

18 Valuing Volunteering - Nepal

Another volunteer felt that she had changed some of the unsatisfactory Whether the volunteer directly appeals to permanent staff or acts as
practices occurring at the hospital, by challenging permanent staff who a catalyst by modelling certain positive behaviours, a level of respect
were unnecessarily referring patients to private provision: from and integration with permanent staff is required for this to have
any effect. If this is there, volunteers can provide non-managerial
“Before they would leave the hospital and tell people they don’t opportunities for professionals to reflect on existing practice, which
have that facility so they would call the private medical. When can lead to improvements to existing services.
I went there I talked to them about this and said, it is not good
to send people to the private clinic, people can be served inside In the above examples the altruistic aspects of the volunteer role
this hospital and not [sent to] the private clinic.” made colleagues question their own practices and attitudes. But in
NDVS volunteer other instances, volunteers felt that playing down their volunteer
identity enabled them to integrate more closely with permanent
A motivated and capable volunteer can provide opportunities staff and this could bring real benefits. For example, some
for professional reflection for permanent staff that can lead to volunteers delivering emergency care in hospitals and health posts
improvements. This can happen in different ways: either by directly faced negative reactions from community members distrustful of
approaching colleagues (as above), or more passively. For example, volunteers’ capabilities (discussed further below). If volunteers were
one volunteer felt that his presence had changed the behaviour of embraced by permanent staff and therefore perceived to be part of
the permanent staff he worked alongside: the existing team, volunteers felt such negative reactions could be
mitigated. As one volunteer explained, a more collegial approach
“We have changed the regularity of permanent staff. Nowadays, brought advantages:
I think they see us with less salary and we are working more
than them. We are earning less salary than them, we are “I had a different experience. I was treated well by the other
earning little money but we are being active. So (they think) we staff. I don’t have any negative experience. It depends on the
should help them... so I think this will be changed.” place and the person and how they respond. We are all one
NDVS volunteer staff. When people [service-users] see us as the same as other
staff there is no problem. But if people see us as volunteers
Indeed, when speaking with a permanent staff member in charge of [separate] then it is a problem.”
the health post, he explained: NDVS volunteer

“I’ve learnt many things from the volunteer about being timely,
regular, and other things. Permanent staff may be regular but
not timely. But because of the volunteer they have learnt to
come on time.”
Permanent staff

The National Development Volunteer Service of Nepal 19

Barriers to delivering and improving services Volunteers in the most remote region felt particularly strongly that
their placements were made more difficult by the absenteeism of
For other volunteers, their volunteer identity was not so positively permanent staff. The challenges that volunteers placed in the most
interpreted by the permanent staff they worked alongside, or they remote regions face are compounded by the fact that they are least
found integrating with permanent staff a challenge. As a result, likely to be supported by permanent staff (with absenteeism and
opportunities were not fully realised. recruitment problems rife in these areas (Harris et al, 2013)). This
has implications for their workload (e.g. one volunteer covered nine
Some volunteers did not see that their role extended beyond service posts), but too often they were left without direction or support:
delivery. For others, aspects of being a volunteer – relatively low pay,
its temporary nature – left them at the bottom of the hierarchy in the “Everywhere where we work the permanent staff are neglecting
workplace, with little power to influence their colleagues or to share their work and the volunteers are forced to do everything. I’m
skills, even if they had felt the need to. Some volunteers felt their enjoying doing the work but I don’t get the necessary privileges.”
volunteer identity worked against them: NDVS volunteer

“People see me as ‘just a volunteer’ so no respect is given. They

just see me as someone who was unemployed and couldn’t get “We did very hard work there (in the placement), but those who
a job. They don’t know about volunteers and their role.” are permanent staff they neglect their work. Volunteers don’t
NDVS volunteer get privileges. If the permanent staff work extra time they get a
bonus but we never get this. Staff get four, five, six trainings per
year but we never get this.”
“Most of the time the permanent staff neglect the volunteers. NDVS volunteer
They don’t care about us – ‘ah they are just volunteers, they are
just coming for a few days’. People don’t support us.” There may be a range of responses to this lack of support including
NDVS volunteer frustration and demotivation.

As a result, their volunteer identity could be a barrier to sharing ideas: Finally, volunteers felt that a lack of support from permanent staff
could have a knock-on effect on service-users. Negative stereotypes
“Permanent staff are supposed to have updated information so which associate national volunteering with low-employability and
it is hard for them to take the information from the volunteers. amateurism affected volunteers, particularly those involved in
They are reluctant to take on this information from volunteers.” delivering emergency care:
NDVS volunteers
“Some patients complain about the volunteers, because we are
In other cases, the impact of the volunteer was limited by insufficient volunteers (they don’t trust us). Once I treated a woman who
support and assistance from permanent staff. For some volunteers, had (a severe ear infection). I gave her ear drops, medication.
they could have operated more effectively had they received better But afterwards the woman complained to the supervisor just
guidance and support: because I am a volunteer. Most people in the community say
negative things, but some say positive things.”
NDVS volunteer: “They don’t listen to us, they don’t give us NDVS volunteer
advice. Not all – some, some government workers they think
‘volunteers, what do they do?’ They don’t do anything, they
don’t listen to us… I need their help.” “Yes, and they say ‘call the doctor’. They would say call the
Researcher: “And does it make a difference..? (interrupting)” doctor, they want to see a permanent CMA. We are also CMAs.
NDVS volunteer: “Yes a big difference if someone supports us, If we want to change, first we should have to change our
yes yes, yes.” perception (of volunteers).”
Researcher: “Can you give me an example?” NDVS volunteer
NDVS volunteer: “(One supervisor) helped me with project
estimation, and solving, and gave advice on how to do this. If I In some instances, without the endorsement of permanent staff
don’t know about this, I have no idea how to do it.” (either directly or by including volunteers as part of the team of
(Interview with NDVS volunteer) permanent staff), these misconceptions were left unchallenged,
making it difficult to deliver services to unreceptive service-users:
Sometimes the volunteer’s potential was not fully utilised because
insufficient attention was given to how to use the additional resource: “Permanent staff are sometimes good to us. Then other people
(community members) don’t ignore us. But permanent staff
“We visited her service centre and the permanent staff never include us, they are always separate from us.”
member was also undermining her somehow. He had sent her NDVS volunteer
somewhere to look after farming houses, he had not given any
role to act proactively or use her full skills.”
Anonymous

20 Valuing Volunteering - Nepal

Mechanisms that monitor the quality of relationships with permanent This chapter also highlights issues around volunteer identity.
staff are essential but a major challenge for a volunteer scheme with Volunteers used their volunteer identity to advantage, e.g.
over 600 volunteers placed primarily in remote areas. Progress has highlighting their own sacrifices to change permanent staff’s
been made in this area in recent years, e.g. there is now a volunteer practices. But at the same time they sometimes chose to underplay
in each district assigned as district coordinator and responsible for this identity in order to integrate into the team of permanent staff.
liaising with other volunteers in their area on issues such as their This poses several challenges for NDVS: how can their role as change
wellbeing. But some volunteers still felt that the complicated work- agents and innovators be consolidated, whilst they are also valued
based hierarchy, and their position in relation to it, made it difficult and supported as part of the team of permanent staff?
for grievances to be voiced or acted on:

“Permanent members they don’t assist us. We have to see for Implications
ourselves... bring the water, do the arrangements... We used to
share our complaints with our chief (of the post). But he is also • Without sufficient buy-in from permanent staff, volunteers’ skills
permanent, so how could he order to the other staff?” may not be fully utilised.
NDVS volunteer • Opportunities for sharing information can be lost – both for the
volunteer to learn from staff and for staff to learn from volunteers.
• If volunteers have difficulties integrating into the existing team
of permanent staff or are not fully supported by their colleagues,
Conclusion there are implications for volunteers’ motivation and wellbeing.
• NDVS, permanent staff and volunteers need to have a clear
As expected with a scheme that covers so many roles and disciplines understanding of the role of the volunteers, and what the role of
and involves such a variety of individuals, there was a wide range in permanent staff is in relation to volunteers.
volunteer experience in terms of how they related with permanent • Finding ways to improve the status or legitimacy of volunteers may
staff and the effects of this. To an extent, this is unavoidable. improve relations with permanent staff, and increase potential for
Misplaced confidence in the ability of volunteers to manage their the sharing of skills.
professional relationships with permanent staff goes a long way • Ensuring that volunteers have a unique role, and stressing the
to explaining why some volunteers are unable to optimise their importance of this (e.g. community outreach work, specialist
performance in their role. The receptiveness and response of those knowledge) could give volunteers a distinctive presence and
the volunteer works alongside is often crucial for them to be able to purpose, and avoid issues around permanent staff’s work being
carry out their duties, but too often this is given limited attention. As replaced or challenged by volunteers.
a result there is a great deal of variation in the quality of placement • A volunteer identity can motivate volunteers and help distinguish
experience and its impact. them from some of the less positive aspects of service delivery
in Nepal.
Because of the multitude of factors involved in building positive • Because volunteering can also be associated with being untrained
working relationships, it can be difficult for volunteer organisations and inexperienced, a distinct volunteer identity can be difficult
to know how to navigate and act on this. Nevertheless, there is for volunteers when working with the community and with
scope for action. Firstly, there is a role in ensuring that permanent permanent staff.
staff are well informed: at district and local level, permanent staff • Continued promotional work on volunteerism and NDVS could
need to be provided with clear and full information about NDVS and lead to improved perceptions of volunteering. Continuing
the role of volunteers, and rules and guidelines that specify their to work collaboratively with international volunteering
role in relation to the volunteer. It is important that responsibility for organisations (including at local level) could enhance the
the volunteer’s impact and wellbeing is shared by local partners and standing of national volunteers.
that support mechanisms are in place and subject to monitoring and • Attempts to distinguish volunteers from permanent staff (e.g. by
periodic evaluation. introducing NDVS uniforms) need to be undertaken with care.
Highlighting differences could make it more difficult for volunteers
There is also a role in ensuring that NDVS volunteers are given to integrate with permanent staff, which has implications for
legitimacy. NDVS are implementing an increasing number of activities volunteer impact.
that raise the profile of the organisation and celebrate volunteer
achievements. In a hierarchical system, endorsement from high-
level officers both centrally and locally is also important for the
morale of volunteers and to ensure permanent staff give volunteers
due recognition. In addition, ensuring that both volunteers and the
scheme have a clear understanding of its role – being more specific
about what it is that volunteers are adding, and ensuring that
volunteers are given the skills needed to do this – may help to change
perceptions of volunteers and foster more collaborative working.

The National Development Volunteer Service of Nepal 21

6. Volunteer wellbeing and motivation
NDVS have a key function in terms of reaching the most remote areas
of Nepal and ensuring that these communities have access to essential
services. A consequence of this is that demands on volunteers can
be high, particularly for volunteers living in the most remote and
inaccessible regions, and for volunteers, especially women, who may
have additional domestic duties.

Volunteering in remote Other volunteers talked of the additional costs they would have
and inaccessible areas to cover if they needed to take transport to remote areas, or felt
unsafe to travel by road to their placement. Furthermore, in some
Interestingly, volunteers from the districts categorised as the most areas, volunteers faced additional costs because administrative
inaccessible in Nepal (the Karnali region) showed a particularly procedures required them to travel to the district headquarters to
high level of commitment to serving their community. Their posts receive their allowance:
were several days’ walk from their homes even though they were
placed in their own district (an indication of the area’s remoteness). “Still in some districts, rather than being paid the allowance
These volunteers stressed the importance of voluntering in their automatically, the volunteers have to travel to the district
‘birthplace’ as central to their motivation to volunteer. In Nepal, office (in the district head quarters). This is difficult and costly
where identity and regionality are still closely entwined, it is particularly for volunteers who live in remote districts (no travel
understandable that motivation can be sustained when volunteers allowance is provided for this). The allowance is paid from NDVS
are doing something for their own community – it resonates with to the district office and then to the volunteers. This means they
the idea of swaymsaybak (self-service), and of working together to are not paid for a long time. Some district offices do not want
help afno manche. One volunteer from the Karnali region described the automated system because they are not used to this.”
his motivations: Anonymous

“Volunteers don’t want to lose their confidence in front of Furthermore, volunteers spoke of the demands that living in remote
permanent staff, they really want to show permanent staff communities made on their families.
that they have the same power and ability and skill as them.
And that this ability must be utilised by providing services to “Where I work, it is 3 days from my family. My family are not
our community. Because many of the volunteers are serving in being cared for in the same way when I am away.”
their own districts and communities and this is why they are NDVS volunteer
motivated in a different way from permanent staff.”
NDVS volunteer
“My family live very far. I feel very bad because when my
Their commitment was palpable. But it is important to remember children get sick I’m not able to help them.”
the additional sacrifices, both in monetary and in wellbeing terms, NDVS volunteer
that volunteers working in the most remote posts face. For example,
because of the remoteness of their placements, some volunteers had
additional expenses: “Compared to the Terai (plane region) distances take four times
as long to travel to. It takes 4 days to reach my placement. I
“Sometimes I have to stay in places on the way to the placement only return home for Dhasain festival [major Hindu festival in
because it is several days walk. It is difficult to provide for my October] only.”
family because I have to use my own money for this.” NDVS volunteer
NDVS volunteer
One female volunteer described how her parents cared for her
3-year-old daughter whilst she lived at a remote health post in a
remote mountain district.

Volunteers in this region spoke of the positive reception received

from service-users, who were grateful to volunteers for their efforts,
particularly given the limited services they had been used to. This
reception was in contrast to their experience with permanent staff
who often left them with little support (see chapter 5).

22 Valuing Volunteering - Nepal

Conclusion Figure 6. A volunteer exchange visit: some volunteers need to
balance domestic duties with volunteering
The realities of the most remote districts – low but highly dispersed
populations and low levels of infrastructure – mean that in order
to deliver key services to the hardest to reach, volunteers have
to travel long distances. While they do receive an additional
allowance in remote areas (and there are currently plans for further
allowance increases), allowances need to take into account the
additional expenses that may be incurred when working in the most
challenging districts.

Due to a huge rise in outward migration in recent years, one in four

households now has an absent member (Central Bureau of Statistics,
2012). Living away from the family home is a common occurrence in
Nepali society. Nevertheless, it important to note that volunteering
may be a very different experience for those working in the most
remote areas, or for those with additional domestic or childcare
duties. It is important that these additional sacrifices are recognised. Figure 7. Promoting volunteerism through volunteer exchange
programmes and school visits
As discussed in chapter 5, the challenges for volunteers in the most
remote regions are compounded by the fact that they are more likely
to face issues regarding the level of support from permanent staff,
given that absenteeism and recruitment problems are highest in such
areas (Harris et al, 2013). There can be great variation in the quality
of placement experience for volunteers, and this raises important
questions for volunteer organisations: What are the most appropriate
ways to recognise the additional sacrifices and challenges faced?
Given the wider systemic issues regarding human resource allocation
in remote areas, how can volunteer organisations help to ensure
all volunteers are able to gain experience and receive support from
permanent staff colleagues?

Implications
• Some volunteers have to make additional sacrifices (e.g. monetary,
familial) which can affect their impact if they are not adequately
supported. Given that the weight of domestic duties usually
falls to women, this can affect female volunteers with childcare
responsibilities in particular.
• If differences in volunteer experience are not sufficiently
recognised and taken into account, there is a risk that volunteers
working in the hardest-to-reach areas will not have the same
opportunities as those living in less marginalised areas. For
example, their opportunity to learn and gain experience from
existing permanent staff members could be limited.

The National Development Volunteer Service of Nepal 23

7. Long-term impacts on marginalisation
and exclusion
NDVS perhaps has a more subtle and long-term impact on the
demographic make-up of the state apparatus and the civil service
through its reservation system (outlined below) which promotes
and models positive inclusive practices.
The reservation system means that NDVS is making progress in A step towards a more representative
ensuring that the volunteers mobilised reflect the overall ethnic and public sector?
gender make-up of Nepal. At the same time, there are opportunities
where the inclusive policies of the organisation could be reinforced NDVS recruitment is also based on a reservation system. However, a
so that the gains made in terms of equality and inclusivity at policy benefit of the short (maximum two-year) terms of the volunteers is
level are translated into gains at the local level, with empowered that the representativeness of the volunteer scheme can be secured
volunteers who are able to meaningfully participate in their much more quickly than in the civil service. For example, in 2012/13,
placements and can translate their experience into future long-term female volunteers made up 47% of the total number of NDVS
positive outcomes. volunteers, compared with just 15% in the civil service overall. The
high number of health volunteers (a sector that traditionally attracts
a high proportion of females) does work in NDVS’s favour in terms
The civil service’s demographic profile of achieving near gender parity. Representation in terms of ethnicity
however, does clearly show how the reservation policy is leading to
There are currently approximately 80,000 civil servants working in a more inclusive scheme: in 2012/13, 7% of volunteers were dalits
the Nepali civil service (Paudel, 2013). Historically, the civil service and 26% from ethnic groups. Although not a perfect comparison,
has been dominated by males from high Hindu castes (Brahman and it is interesting to note the status of inclusion at Ministry level in
Chhetri) from the hill region, and the urban-based Newar (Paudel, 2012 – with just 14 of 3,434 dalits in the Health Ministry (0.4%) and
2013). In 2007, at the time of the interim constitution, drafted 336 (9%) from ethnic groups (which includes Newar) (Awasthi and
following the ten-year insurgency and which emphasised an inclusive Adhikary, 2012).
Nepal, reform of the policy framework of the civil service began. A
reservation policy was introduced which stated that 55% of the total In the short term, the reservation system means that NDVS has been
vacant seats must be allocated for open competition, whilst 45% of able to model very quickly an inclusivity that is much more difficult
seats must be reserved for women, ethnic minorities, regional and for the civil service as a whole to mirror. Given that 9,000 volunteers
disabled people (Paudel, 2013). have been deployed by NDVS since 2000 this could have positive
long-term implications for the inclusiveness of the government
Progress in making the civil service more balanced has been slow services. Many volunteers expressed their desire to work in the
and the bureaucracy in Nepal remains gender-biased, religion-biased public sector in the future and felt that volunteering for NDVS had
and caste-biased demographically (Dhakal, 2013). While figures given them relevant experience which would help them to secure
were unavailable for the caste-wise distribution of the candidates for long-term employment:
reserved seats, the fact that the male/female ratio of civil servants
remains so imbalanced is indicative: despite a rise of over 3% since “It is good to get knowledge (from working with NDVS), so when
2008, women still make up only 15% of the total number of civil permanent staff vacancies come we will get a chance.”
servants (Dhakal, 2013; MOGA, 2013). NDVS volunteer

Therefore, as a scheme that helps to supply the public services

with new recruits, NDVS’s inclusivity could help with the long-term
demographic shift that national level policies are intended (but
currently finding difficult) to achieve.

NDVS’s policies to recruit volunteers from their resident district

where possible, and to meet certain inclusivity criteria, also mean
that volunteers often have links with the communities in which
they serve. One official felt that this sense of connection and the
informal links volunteers generally have is a key difference between
volunteers and public servants. This connection and its implications
are discussed in chapter 4.

24 Valuing Volunteering - Nepal

Inclusion, volunteering and social harmony Promoting an inclusive policy at all levels
The inclusive policies of NDVS and the equalising potential of Policies that govern NDVS recruitment and selection have had
volunteering could play a role in promoting positive inter-caste and positive impacts in terms of making the scheme more inclusive and
inter-ethnic relationships. It was interesting to observe volunteers may have long-term implications for the public sector as a whole.
during training sessions, field trips and volunteer exchange visits. However, while NDVS are working to make the scheme increasingly
There was a sense of being part of something that transcended caste, meritocratic and inclusive in terms of selection and recruitment,
ethnic and regional boundaries. For example, when speaking with in practice the existence of exclusionary tendencies due to gender
volunteers from ethnic minorities, volunteers felt that there were no or caste can make it difficult for some volunteers to actively and
divisions based on ethnic or caste lines between NDVS volunteers: meaningfully participate.

“No, we are all one family.” While further in-depth research into the extent to which exclusionary
NDVS volunteer cultural norms impact on volunteers would enable a better sense
of the scale and scope of the issue, in some cases such practices
appeared to be affecting volunteers. For example, at one post visited,
“No not at all, we are all familiar... why? Because we are all the female dalit volunteer had not regularly attended the post for
volunteers. We are in a different area and because we are all almost a year. While her colleagues felt that her placement had been
fresh and new.” difficult because her manager was on sick leave, she had been given a
NDVS volunteer role that did not fit her specialism, and there was a sense that it may
have been easy to ignore a young engineer who had fewer networks
Volunteer exchange visits also give volunteers the opportunity to visit and a lower place in the hierarchy because of her age, caste, gender,
different districts of the country and learn about different disciplines. volunteer status and experience. In contrast, as the following extract
Some Terai (planes of Nepal)-based NDVS volunteers interviewed had shows, certain volunteers with connections to those in positions of
never previously been to the hill region. Such exchanges may foster a influence may have a very different experience of volunteering:
greater long-term understanding of the very distinct regional cultures
and development challenges faced. “There is an influence of nepotism here. When you know your
supervisor very well, or he is your relative somehow then the
Given both the relatively large scale of the NDVS scheme, and the fact behaviour to you is very different. But if no one is there in the
that ethnic and caste distinctions are still associated with forms of district head quarters, then the experience is very different.”
exclusion in various dimensions in Nepali society, the scheme’s role in Anonymous
promoting inclusive practices among volunteers is significant.
This is certainly not to say that all volunteers from traditionally
excluded castes suffer discrimination. However, recognising that
volunteers may not be treated equally, or may not have access to the
same networks during their placements, is important.

While the response from counterparts and the community that

volunteers work alongside is more difficult to influence and
control, there is perhaps scope for promoting inclusive practices
and enhancing the capabilities of groups that traditionally suffer
discrimination. For example, during NDVS trainings and workshops
there was sometimes a passive gender bias – apparentin the seating
arrangements, allocation of roles, participation in discussions and
group work, etc – which was not always actively addressed. NDVS
could look at enhancing the capabilities of certain groups (e.g. specific
trainings for female volunteers) and ensuring inclusive practices
during NDVS trainings so that an inclusive policy translates into active
participation of excluded groups at local level.

The National Development Volunteer Service of Nepal 25

Conclusion Implications
In its ethnic and gender make-up, NDVS overall is becoming a • NDVS could positively impact on the overall make-up of the civil
relatively positive model of inclusion. Although the visibility of this service in future years.
is diluted because of the deployment of volunteers across Nepal, it • NDVS could extend its role to ensure volunteers from marginalised
nevertheless may have a positive impact on the volunteers on the groups are able to actively participate both in their current roles as
scheme, and as a model for other civil service departments. The volunteers and in the future as servants of the state.
inclusive policies of NDVS could also have long-term implications for • Volunteer schemes can promote positive relationships between
the make-up of the state’s apparatus of service delivery given that individuals from different castes, cultures and ethnicities, and give
many volunteers may eventually become public servants. individuals a greater understanding of the unique challenges faced
More can be done. In particular, attempts must be made to reach by the different regions of Nepal.
gender parity in each sector – not relying on the health sector,
which traditionally attracts a high number of women, to achieve
equal representation. If NDVS can create and encourage an inclusive
environment in practice, and focus on building the capabilities
of people from traditionally excluded groups, this could help
volunteers in their placements and also help them to translate
their experience into positive future outcomes (e.g. obtaining the
necessary qualifications to progress to a permanent position in
the public sector). This is important: as Dhakal notes, “entry of the
marginalised community cannot be ensured by just allotting seats”
and currently, reserved places in the civil service go unfulfilled
because there are not sufficient candidates with the minimum
requirements to be selected (Dhakal, 2013). NDVS could play a
positive role in addressing this.

Figure 9. Volunteers participate in a training session (left); volunteers visit a hydropower project in the hill region
where their peers were based

26 Valuing Volunteering - Nepal

8. Sustainability and dependency – how do
the volunteers affect the system of service
delivery in Nepal?
The NDVS scheme overlays the public service delivery apparatus of
Nepal. There are a number of complex and persistent challenges that
the public service sector currently faces, including maldistribution of
permanent staff and high levels of absenteeism. This raises questions
about how the scheme relates to these challenges both in the short
and long term. What are the implications of these challenges for the
volunteers and for Nepal’s poverty reduction goals, and what is the
role of volunteers in relation to these challenges?

Permanent staff in remote locations In the short term, this has implications for volunteers in terms
of the support they receive and their wellbeing (as discussed in
Understaffing and vacant posts remain a major issue in rural areas, chapter 5). Additionally, there are implications in terms of the level
largely due to long-term challenges in deploying and retaining of responsibility some volunteers have to assume. One volunteer
essential health workers (Harris et al, 2013). There are formal describes her experience of managing a health post with junior staff
systems in place to address such issues, but Harris et al note that in a remote area:
‘other factors tend to easily and often strongly undermine the formal
systems currently in place’ (Harris et al, 2013). These factors include “At first, the permanent staff didn’t obey. But after, they
low levels of professionalism and high levels of politicisation of the gradually began to listen. As the Health Assistant in charge of
civil service. There is a ‘market for transfers’ which contravenes the the post I had responsibility for the post – the authority to do
existing formal rules (e.g. required years of service in remote areas) programmes, to teach, for example, Polio programmes, vitamins
and bases transfers on favouritism, nepotism and other forms of programmes – I would conduct these. At first, in the first two
corruption (Harris et al, 2013). This, along with a lack of adequate or three months, I faced problems because the staff were not
incentives, and issues around the supply of appropriately trained staff regular. But then things started to change. I advised them to
in rural areas, has contributed to a major problem with deploying and be regular and on time. Being in charge is a tough job and
retaining staff in the hardest-to-reach places. everything that went wrong was on my shoulders.”
NDVS volunteer

Figure 10. The journey to a remote health post in Eastern Nepal In addition, this raises issues around fairness: because volunteers
may have less influence over where they are placed, they are sent
to the remote areas where district officers find it more difficult
to post permanent staff, even though permanent staff would
receive increased benefits from working there. This extract refers
to volunteers being “negatively sent” to certain areas (i.e. they are
deployed in places where permanent staff do not want to be placed):

“The district officers are politically or administratively motivated

to send volunteers to the remote parts where maybe permanent
staff members are not there… (the volunteers) are negatively
sent there, sent there intentionally.”
Anonymous

The volunteers ensure that services are delivered, despite these

problems. This may be acceptable in the short term, but in the long term
it limits the impact of volunteers on improving services, and perhaps
even allows staff to continue with poor and unprofessional practice:

“Permanent staff are there but not continuously. Some are busy
in their own job, busy in their business. They just fill the register,
get the money, but neglect their work. They pay the house rent
for the office but no one is actually working there.”
NDVS volunteer

The National Development Volunteer Service of Nepal 27

Conflicts of interest and absenteeism Conclusion
The low level of motivation among health workers has been NDVS was originally established to meet short-term manpower
identified as a key issue in the current human resource crisis in the needs in the remote communities. A major constraint on
health sector (Shrestha and Bhandari, 2013). The reasons for low development in Nepal remains the shortage of technical manpower
levels of motivation are various and cannot be explored in depth as in rural locations. While the national volunteers can help to supply
part of this report. Issues of motivation are also linked to a high level this manpower in the short term, it is important to note that without
of absenteeism, but it is also worth noting the provisions available tackling the underlying issues, the scheme in a sense serves to satisfy
to permanent staff, such as a high study leave allowance and annual a resource gap which will continue to challenge Nepal’s system of
leave entitlement, which contribute to this (Harris et al, 2013). In service delivery. In this context, NDVS’s contribution to long-term
addition, there is a problem of public servants having a ‘conflict of development goals will be limited by wider issues in the system of
interest’, e.g. the practice of owning either private clinics or medical service delivery.
stores, or working for for-profit institutions was found to be common
amongst health practitioners (Asia Foundation, 2012). It was interesting to note a certain degree of acceptance of the
underlying issues and recognition of the scheme’s place in the larger
Some volunteers felt that permanent staff were engaging in such picture by some volunteers:
practices and that, as a result, the volunteers were fulfilling the roles
of permanent staff members: “Permanent staff have lots of privileges given by the law
so they really don’t like to stay in remote places. When the
“I think if we (me and fellow volunteer working in same government sends volunteers to work in the remote areas,
hospital) are taken from here, the Emergency will not be run. because volunteers are motivated from themselves, they are
Because permanent staff are little and little staying there.” supposed to stay in these places and serve the community
NDVS volunteer better than permanent staff, so this is why the government
may deploy volunteers.”
NDVS volunteer
“The permanent staff has his own private clinic so the
permanent staff member wants to treat patients at the health But as discussed above, if volunteers are not supported by
post as fast as possible so he gives responsibilities to me, so that permanent staff, this can have implications in terms of volunteers’
is why I stay longer than permanent staff.” motivation, wellbeing and sense of agency.
NDVS volunteer
It is unclear whether NDVS, indeed volunteering, could have a
role in tackling these underlying issues. There are instances where
“For me the work is a duty – but I fulfil the work of the motivation of staff has been positively affected by volunteers,
permanent staff.” but in the long term, as Shrestha and Bhandari note, “ensuring a
NDVS volunteer comprehensive strategy that maximises health worker motivation
is crucial, particularly in remote areas where the low retention of
Again, while in the short term the volunteers may have ensured health workers creates an enormous challenge within the health
that service-users had access to care and service, in the long term system”. Unfortunately, often macro-economic issues are favoured
this raises the question of whether, in some instances, volunteers by governments at the expense of focusing on motivation and
are replacing the work of permanent staff rather than adding to performance (Shrestha and Bhandari, 2013).
existing services.

Implications
• Without tackling the underlying causes of maldistribution,
absenteeism and other unprofessional practices in the public service
sector, the impact of volunteering on poverty goals will be limited.
• Underlying issues affect volunteers’ wellbeing and motivation, and
risk undermining the spirit of volunteerism.
• Underlying issues can affect the quality of the relationship between
permanent staff and volunteers, and particularly the level of
support given to volunteers.

28 Valuing Volunteering - Nepal

Reflections on the process
Valuing Volunteering Nepal’s NDVS case study had three key
objectives: to conduct an investigation into NDVS, gathering evidence
on volunteering which would inform NDVS and contribute to a better
understanding of volunteering’s impact in Nepal and globally; to start
a process of evidence-based learning within NDVS, where lessons
learned were acted on and evaluated; and to work with NDVS to
establish systems where evidence-based organisational learning
could continue beyond the parameters of the investigation.

The inquiry While this allowed for in-depth inquiries with a range of volunteers,
it was more difficult to gain access to permanent staff members on a
This inquiry provided valuable insights into the challenges of similar scale. The views of permanent staff members were gathered
conducting research into an organisation which is designed to wherever possible during site visits, and while these inputs provide
primarily operate in the most remote and inaccessible geographical useful insights, the study remains primarily an investigation into the
locations. NDVS volunteers are perhaps the most remotely placed perceptions and experiences of volunteers.
of all volunteers in Nepal. This made it difficult and time-consuming
to visit volunteers in situ, with distances between posts often at Where possible, community members’ perceptions of volunteers
least a day’s journey in hill and mountain areas. Because of the great and of NDVS were also explored, but this remained very much at
variation in volunteer placement experience due to a range of factors the general level. Practicalities and issues around the visibility of
(the geographical location, role, sector, etc, of the volunteer), it was volunteers (often community members had little knowledge of the
important that the inquiry had sufficient breadth and was not overly scheme or were unable to distinguish the volunteers from staff
focused on the experiences of a small number of volunteers in one members) made it difficult to explore this in more detail.
or two locations. Therefore, opportunities for contact were taken
whenever volunteers were brought together – e.g. during trainings,
workshops and exchange visits. Moving from inquiry to action
For the inquiry to move from a broad inquiry to an action-research
Figure 11. Walking to a health post in Rolpa district process at either the local or organisational level, a number of
conditions had to be met. Firstly, more opportunities to work with
the volunteers and project managers to map and analyse the findings
were needed. Several key individuals were identified who were eager
to be involved in this process. However, the remoteness of volunteers
made this difficult because of the cost of travel and the time they
would need to take away from their posts, even if this stage took
place in a district headquarters. Understandably, NDVS try to limit
the travel demands on volunteers, so as to avoid the impact on the
delivery of essential services.

Furthermore, NDVS’s project officers (based in Baluwatar,

Kathmandu) have a high workload: there are just three programme
officers managing a scheme with nearly 600 volunteers. The project
was supported by NDVS staff who were interested and engaged
in feedback and findings. But given the day-to-day demands of
managing a scheme with limited resources, there are genuine
questions raised about how to manage change and introduce learning
processes when, even without this additional work, it is a dynamic,
challenging and busy environment.

The National Development Volunteer Service of Nepal 29

An action-learning process requires experimentation, adaptation Figure 12. Visiting rural health and agricultural posts in the east
and the challenging of dominant discourses. In environments that and mid-western regions of Nepal
are hierarchically organised, highly formalised and stratified, such
processes present challenges. The process also requires a degree
of continuity of personnel, particularly because of the complexity
and sometimes contradictory nature of findings, but also because
the approach is a departure from the more traditional research and
evaluations commissioned (and therefore requires a higher level
of explanation and induction). Engagement is more difficult if the
entire process can’t be followed from its inception, both because in
an emergent inquiry decisions are taken as the process unravels, and
because of the practical issue that new staff facing high demands in
a new role may have limited capacity. Turnover in civil service posts
is relatively high, and at NDVS there were personnel changes in all
project officer posts during the course of the study.

In this context, the position of the researcher is important. The

process raised interesting insights and dilemmas around how action-
research processes are conducted, and by whom. In particular,
the research raises questions around the benefits, challenges and
ethics of occupying spaces that are within the existing system of the
organisation, but at the same time having an identity that is external,
or even alien, to it.

There were clear advantages in being part of the organisation and

working alongside NDVS colleagues: it gave unique insights into the
demands of running such a scheme, of working in a government
bureaucracy and of coordinating with a range of international and
governmental organisations. Relationships built with staff allowed
for many informative informal exchanges. Being an ‘outsider’ was
an advantage in some respects because the researcher enjoyed a
relatively detached and therefore neutral position.

On the other hand, aspects of being an outsider, e.g. language

barriers, time constraints (particularly as the NDVS inquiry is one of
several case studies undertaken by Valuing Volunteering Nepal) and
the fact that roles were split between working alongside NDVS but
being a volunteer for a different organisation, meant that someone
with a good knowledge and awareness of internal dynamics might
have been better able to manage a process whereby research moved
to action and organisation learning.

Overall, there were good opportunities to share key learning

from the study both with NDVS and the volunteer sector more
widely. NDVS staff have good knowledge of the research approach,
and certain individuals have a more specific understanding of
certain participatory techniques (e.g. digital storytelling). There is
potential for findings and recommendations to contribute to future
improvements to policy and practice, and for collaborations across
the sector to realise these.

30 Valuing Volunteering - Nepal

Conclusion
NDVS volunteers are able to achieve short-term impacts on service
delivery and play a particularly important role in reaching the very
hardest-to-reach communities. It is often their embeddedness,
their connections with the communities they work with and/or their
self-identity as a volunteer that leads many to deliver an extended
professional contribution. As well as delivering short-term service
delivery gains, the different ways of working that some volunteers
employ may also impact positively on the permanent staff they
work with.

There are issues in terms of ensuring consistency across placements. In order to ensure that volunteers add value, rather than replicate
Some volunteers may have the qualities, skills and experience existing service provision, NDVS need to be clear about what it is that
required to successfully negotiate the sometimes complex distinguishes their volunteers. Basing volunteer identity on ideas of
relationships with permanent staff. But there needs to be greater altruism may be effective in motivating volunteers, but the negative
institutional involvement to ensure that there is clarity about the associations of volunteering need to be challenged to prevent them
roles and responsibilities of all parties, and that these are being being alienated from those they work with or those they serve.
consistently fulfilled. Otherwise, there may be questions around Perhaps a more effective way of ensuring that they have a distinct
quality, and opportunities for some volunteers to add value to existing but respected identity is to invest in volunteers, by providing them
service provision will not be capitalised on (e.g. if volunteers cannot with appropriate, usable and relevant skills to tackle the needs
fulfil their duties due to a lack of support from permanent staff). of a country in transition. In this sense, the emphasis could be on
permanent staff using volunteers as a valued resource.
In the long term, without tackling the causes of underlying challenges
that government services face in Nepal, there is a risk that volunteers Finally, in terms of NDVS’s long-term impacts on the public service
will be used to fill gaps that are there unnecessarily – not because sector, establishing a group of individuals who have roots in
of a shortage of manpower, but because of a failure of the system volunteering and have experienced the most remote areas of the
to properly implement its own policies and regulations in terms of country may be one way of tackling issues around absenteeism
human resource management. Taking a systemic view, the efforts and unprofessional practice in the long term. This is impossible to
of volunteers to promote a ‘spirit of volunteerism’ seem wholly predict, and depends on the quality of the volunteer’s experience
inadequate at tackling the unprofessional practices that are too and how they relate to and internalise this and act on it in future.
common in the public sector. Perhaps one of the potentially most important long-term roles for
volunteers is in helping to ensure the inclusiveness of the sector,
This in turn raises questions about fairness. This is not to say that but NDVS need to ensure that this potential, particularly of those
all volunteers are highly motivated and committed – as with all from marginalised groups, is nurtured so that they can actively
volunteer schemes there are issues of low motivation for a minority. and meaningfully participate both as volunteers and as the public
Nevertheless, for the volunteers who do fully commit themselves, servants of the future.
and work beyond expectations in the spirit of volunteerism, it seems
unfair if this is not always matched by efforts from permanent staff
members even though they are better compensated. There is a
danger of an over-reliance by volunteer organisations on altruistic
values, and a commitment to working for your community – there are
limits to this when sacrifices and benefits are unevenly shared.

The National Development Volunteer Service of Nepal 31

Key implications and recommendations
How volunteers work Wellbeing and motivation
Implications Implications

• Relieving the workload of permanent staff can enable more • Some volunteers have to make additional sacrifices (e.g. monetary,
efficient and effective delivery of services to community members. familial) which can affect their impact if they are not adequately
• Volunteers give the opportunity to secure the right ‘skill mixes’ in supported. Given that the weight of domestic duties usually falls
service delivery. This can be effective both in terms of the quality to women, this can particularly affect female volunteers with
and range of services provided to the community, and also the childcare responsibilities.
access to services (i.e. posts can be opened). • If differences in volunteer experience are not sufficiently
• Volunteers could be a potentially useful resource to update recognised and taken into account, there is a risk that volunteers
permanent staff’s knowledge and training. working in the hardest-to-reach areas do not have the same
opportunities as those living in less marginalised areas. For
example, their opportunity to learn and gain experience from
Recommendations existing permanent staff members could be limited.

• Provide high-quality, up-to-date training in the relevant subject

areas to volunteers to ensure a highly skilled volunteer resource. Recommendations
Consider collaborations with international volunteer organisations
to provide this training. • Ensure that volunteers are adequately compensated for costs
• Ensure that permanent staff at each level are fully aware of the associated with additional travel.
volunteers’ role, and of their role in relation to it. Ensure that NDVS • Consider additional leave allowance for volunteers who live long
volunteers are seen as a valued and high-quality resource. distances from their homes.
• Explore the possibility of joint working arrangements (e.g. two
volunteers cover one placement) for volunteers with childcare
How volunteers work with permanent staff responsibilities.
• Consider prioritising the most remote districts for site visits,
Implications trainings, etc, in recognition that there may be a lower level of
support in such areas, or collaborating with other volunteer
• Without sufficient buy-in from permanent staff, volunteers’ skills organisations (e.g. international) working in the area to help ensure
may not be fully utilised. there is some form of support.
• Opportunities can be lost for sharing information and ideas between
permanent staff and volunteers that improve practice, if sufficient
attention is not given to supporting good working relationships. Long-term impacts on marginalisation
• If volunteers have difficulties integrating into the existing team
of permanent staff or are not fully supported by their colleagues, Implications
there are implications for volunteers’ motivation and wellbeing.
• NDVS could positively impact on the overall demographic make-up
of the civil service in future years.
Recommendations • Volunteer schemes can promote positive relationships between
individuals from different castes, cultures and ethnicities, and give
• All stakeholders need to have a clear understanding of the role individuals a greater understanding of the unique challenges faced
of the volunteers, and what their role is in relation to them. Clear by the different regions of Nepal.
guidelines and in-depth inductions are required for permanent staff.
• Ensure there are ongoing mechanisms to support volunteers and
make sure that the additional resource is used effectively. For
example, optimising the volunteer resource could be made to
be part of permanent staff supervisors’ continuing professional
development.
• Highlight very good practice and continue to recognise volunteers
who have made an exceptional contribution.
• Ensure that volunteers are given legitimacy by being visibly
endorsed by high-level officials at national and local levels.
• Continue promotional work on volunteerism and NDVS, and
continue to work collaboratively with international volunteering
organisations (including at local level) to enhance the standing of
national volunteers (e.g. by using digital stories).
• Ensure that volunteers have a unique role, and stress the importance
of this (e.g. community outreach work, specialist knowledge).

32 Valuing Volunteering - Nepal

Recommendations

• Ensure that recruitment policies work towards ensuring that

volunteers are representative in all sectors (particularly in terms
of reaching gender parity in the agricultural development,
engineering and livestock service sectors).
• Ensure volunteers from marginalised groups are able to actively
participate both in their current roles as volunteers and in the future
as servants of the state. Consider targeted training for volunteers
from marginalised groups to ensure they are able to translate their
experience into positive current and future outcomes.
• Ensure that inductions and guidelines for permanent staff stress
the importance of working inclusively with volunteers.
• Ensure feedback systems are in place that enable volunteers to
report incidences of discrimination.
• Continue to use mechanisms such as volunteer exchange visits
to promote good relationships, connections and shared learning
between volunteers from different regions, ethnicities and
professions.
• Highlight the inclusive policies in recruitment and promotional
activities to ensure that NDVS attracts individuals from a range of
backgrounds and has a positive image in the country more widely.

Sustainability and dependency

Implications
• Without tackling the underlying causes of maldistribution,
absenteeism and other unprofessional practices in the public service
sector, the impact of volunteering on poverty goals will be limited.

Recommendations

• Priority to be given to ensuring there are strategies that tackle

human resource issues in the government services by high-level
stakeholders.

The National Development Volunteer Service of Nepal 33

References
Aditya, A. (2002) Volunteerism in Nepal: Renurturing the mission and Other outputs related to this case study:
revitalizing the movement. Kathmandu: Modern Printing Press.
Asia Foundation (2012) Political Economy Analysis of Local Hacker, E (2014). Education and volunteering in Nepal. A case study
Governance in Nepal. Asia Foundation. from the hill and Terai regions.

Awasthi, G. D. and Adhikary, R. (2012, unpublished). Changes in In January 2014 the Valuing Volunteering Nepal Lead Researcher
Nepalese Civil Service after Adoption of Inclusive Policy and Reform facilitated a digital storytelling workshop in Kailali District with some
Measures. [Report] Retrieved from www.ccd.org.np/publications/ of the Early Child Development (ECD) facilitators and Accelerated
Changes_In_Nepalese_Civil_Service_ENG.pdf Learning Facilitators that participated in this education inquiry.
The question participants were responding to was, “How has
Bennett, L., Tamang, S., Onta, P. and Thapa, M. (2006). Unequal volunteering affected you and your community?”.
Citizens: Gender, caste and ethnic exclusion in Nepal. Kathmandu:
The World Bank and Department for International Development. Jyoti (2014) From Kathmandu to the mountains.
www.youtube.com/watch?v=Z6AGo-Agx8U
Dhakal, D. (2013, unpublished) Analysing Reservation Policies in Civil
Service of Nepal. [Academic presentation] Retreived from Tulsa (2014) I felt sad when I saw that village.
www.pp.u-tokyo.ac.jp/courses/2013/documents/5140143_10a.pdf www.youtube.com/watch?v=wcXd7qhUq18

Franco, L. M., Bennett, S. and Kanfer, R. (2002). Health Sector Shanti (2014) My Early Child Development class.
Reform and Public Sector Health Worker Motivation: A conceptual www.youtube.com/watch?v=8JM0SDef3GE
framework. Social Science & Medicine, 54(8), 1255–66.
Padam (2014) I couldn’t speak their language.
Harris. D., Wales. J., Jones. H., Rana. T., and Chitrakar. R.L. (2013) www.youtube.com/watch?v=X4yvYCOC5rI
‘Human resources for health in Nepal: The politics of access in
remote areas’. London: ODI. Laja (2014) The tree without leaves.
www.youtube.com/watch?v=UqOLxb0p4aM
MOGA (2013) Civil Service Management Report, 2013. Kathmandu:
Ministry of General Administration. Hari (2014) Working for my own community.
www.youtube.com/watch?v=V1cXY9kVarU
NDVS (2013) introductory booklet 2013. Kathmandu: Government
of Nepal. Bitu (2014) Our community’s Early Child Development Class.
www.youtube.com/watch?v=3Z0X9XyY84U
Paudel, N. R. (2013, unpublished) Inclusive Policy Implementation in
Nepal: A case study of civil service. [Academic paper] Retrieved from Dipendra (2014) 3 languages, 52 students.
www.napsipag.org/pdf/d_ab_12.pdf www.youtube.com/watch?v=U_a4k7_gP4I

SOLID (Society for Local Integrated Development) (2012) Working

Conditions of the Health Workforce in Nepal: Barriers to Effective
Policy Implementation and Management of Human Resources for
Health in Nepal. Kathmandu: SOLID Nepal. (CITED IN Harris. D., Wales.
J., Jones. H., Rana. T., and Chitrakar. R.L. (2013) ‘Human resources for
health in Nepal: The politics of access in remote areas’. London: ODI.)

Shrestha, C. and Bhandari, R. (2013). Insight into Human Resources

for Health Status in Nepal. Health Prospect, 11, 40–1.

Vaidya, N. K. & Wu, J. (2011). HIV Epidemic in Far-Western Nepal:

Effect of seasonal labor migration to India. BMC Public Health,
11(1), 310.

34 Valuing Volunteering - Nepal

Valuing Volunteering was a two year (2012 – 2014) global action
research project, conducted by VSO and the Institute of Development
Studies (IDS) to understand how, where and when volunteering affects
poverty and contributes to sustainable development. This case study
is part of a series of inquiries conducted in the Philippines, Kenya,
Mozambique and Nepal which explore the role of volunteering across
different development contexts and systems. Using Participatory
Systemic Action Research it asks local partners, communities and
volunteers to reflect on how and where volunteering can contribute
to positive, sustainable change.

For more information about the global Valuing Volunteering study

please contact: [email protected]

Elizabeth Hacker is a researcher and facilitator, with extensive experience of

qualitative, quantitative and participatory research techniques. Elizabeth was lead
researcher for the Valuing Volunteering Nepal inquiries. In this role, Elizabeth
worked at length with different communities in geographically diverse regions
of Nepal, including an in-depth study on the distinct education challenges that
indigenous communities face in the Far Western region of Nepal.

Elizabeth is currently a research consultant based in Nepal. Recent projects include

the design and implementation of participatory workshops with indigenous
communities in North East India to compare indigenous and non-indigenous
conceptualisations of wellbeing, and collecting evidence and writing chapters for a
global UN report on volunteerism and governance.

Previously Elizabeth worked at the UK’s largest independent research institute,

NatCen Social Research where she managed major projects in the areas of health,
education and life course research. Her last role was as Project Manager for the
world’s largest longitudinal social science study Understanding Society.

VSO Nepal VSO International ISBN 978-1-903697-76-4

www.vsointernational.org
PO Box 207
Kathmandu Institute of Development Studies
Nepal www.ids.ac.uk

(+977) 1 554 1469 VSO Ireland

(+977) 1 552 1616 www.vso.ie 9 781903 697764
(+977) 1 554 0269/4
VSO Jitolee
[email protected] www.vsojitolee.org

VSO Netherlands
www.vso.nl