Nepal, Aug. 13 -- It has been eight years and two general elections since Nepal took its first step as a federal republic. Over these years, public debates on federalism have largely revolved around provincial boundaries, ethnic lines, distribution of powers and the performance of provincial governments. Far less attention has been paid to a set of offices that exist in every province, consume public resources and yet contribute almost nothing to provinces' governance-the provincial governors.

Each of Nepal's seven provinces has a figurehead, appointed by the federal cabinet and described as the 'constitutional head' of the province. Their functions are largely ceremonial-like summoning the provincial assembly, swearing the provincial mi...