UCPN (M), Nepali Congress, and UML reached a five-point agreement on state bodies, form of government, formation of parliament, judiciary, and constitutional court, which included the multi-ethnic character of all the states, 11 states under state restructuring, states to be named by the state assemblies, and a formation of a central federal commission for delineating boundaries of the states. The agreement also included a mixed form of government of directly elected president and prime minister elected through the parliament, mixed election system, 311-member Lower House and 65-member Upper House, formation of constitutional court chaired by the Chief Justice.

United Democratic Madhesi Front (UDMF) had expressed its disagreement over the 11-states model and naming of the states afterwards. Bijaya Kumar Gachhedar from the Front had clarified though there were reservations over the federal bodies, it would not be an obstacle to peace and constitution-drafting. However, the next day, the Front started discussion on whether to show disagreement while in government or to quit the government. It warned the UCPN (M) leadership that it would quit the government if it did not ‘correct’ the 11-states model agreement. In response, UCPN (M) chairperson Pushpa Kamal Dahal stated that discussion could be held on 10 to 14 states. Immediately after the disagreement shown by the Front, indigenous nationalities demanded federalism with identity.
Indigenous Nationalities United Struggle Committee and Broader Madhesi Front announced protests for federalism with identity and other demands, and Broader Madhesi Front proposed cooperation with UDMF. Broader Madhesi Front obstructed the parliamentary proceeding demanding identity-based states. After prime minister Baburam Bhattarai stated the 11-states model is a preliminary agreement among the parties and expressed commitment to revise the numbers, the parliament endorsed the 12th amendment of the Interim Constitution to shorten the procedures for passing bills.

Where there was no clarity on whether to decide the disputed issues through voting or not and disputes among the parties was continuing, UDMF started a signature campaign in the parliament demanding identity-based states. Additional pressure was created after 320 CA members’ signatures, demanding identity-based states, were submitted to Pushpa Kamal Dahal, coordinator the dispute resolution sub-committee. The indigenous communities created further pressure with demands to either follow the majority report of the State Restructuring Commission or the report of the Committee on State Restructuring and Distribution of State Power. In the meantime, UCPN (M) chairperson Pushpa Kamal Dahal stated that an agreement to form 11 states was opposed by UDMF and objections had been raised by the public, so it will not be taken to the dispute resolution sub-committee under any condition. He also requested the indigenous nationalities to create pressure in favour of identity-based federalism. After Congress and UML accused UCPN (M) leadership of backing down from previous agreements, constitution-drafting process could not move forward.

The government finally became national consensus one, and a three-point agreement to include Brahman, Chhetri, Dashnami and others under indigenous category. The movement for undivided far west was withdrawn after an agreement between the government and the talks team of the undivided far west movement to make a single state by including all the nine districts of Seti and Mahakali Zones. However, United Tharu Struggle Committee and Rana Tharu Autonomous State continued their protests saying their demands were being addressed.
 

Major Developments