Reconstructing Democracy in South Asia Cross … Jahan.pdf1 Rounaq Jahan Distinguished Fellow Centre for Policy Dialogue (CPD) Dhaka, Bangladesh Reconstructing Democracy in South Asia

11

Rounaq JahanRounaq JahanDistinguished FellowDistinguished Fellow

Centre for Policy Dialogue (CPD) Centre for Policy Dialogue (CPD) Dhaka, Bangladesh Dhaka, Bangladesh

Reconstructing Democracy in South AsiaReconstructing Democracy in South AsiaCrossCross‐‐country Presentationcountry Presentation

New Delhi: 25 February, 2011

World Conference on Recreating South AsiaWorld Conference on Recreating South AsiaDemocracy, Social Justice and Sustainable DevelopmentDemocracy, Social Justice and Sustainable DevelopmentIndia International Centre (IIC), 24India International Centre (IIC), 24--26 February, 201126 February, 2011

22

1.

Overview

2.

The challenge of democratizing electoral democracy

3.

Forces challenging electoral democracy

4.

Promising arenas to improve the quality of democracy

5.

Conclusion

Table of ContentTable of Content

33

Definition and our understanding of the meaning of democracy vary but

the idea of democracy has strong popular support globally (Table 1).

In South Asia, the normative commitment to democracy is demonstrated

in a variety of ways

√

Anti-colonial/nationalist movements drew upon massive mobilizations

which demanded a commitment to democracy.

√

Public opinion surveys in the region indicate high popular support for

democracy (Table 2).

1. Overview1. Overview

Autocratic rulers highly contested and overthrown by popular movements√

Military regime in Bangladesh overthrown by people’s movement√

Military regimes in Pakistan repeatedly challenged by pro-democracy movements

√

Monarchy overthrown in Nepal by people’s movement√

A 30-year autocratic regime in the Maldives overthrown by people’s movement

44

Table 1: Support for Democracy

Source: SDSA, p. 12


55

Table 2: Overwhelming Support for Democracy

Source: SDSA, p. 11 Source: SDSA, p. 11


66

Autocratic regimes felt compelled to seek popular legitimization

√

Military regimes in Bangladesh and Pakistan repeatedly civilianized

themselves and manufactured electoral support

South Asian countries have longstanding experiences with electoral democracy√

All post colonial states began with democracy√

Citizens exposed to party system and multi-party contestations over a long period -

Indian National Congress was established in 1885.-

The Muslim League (India and Pakistan) was established in 1906.-

The Bangladesh Awami League was established in 1949.-

In Sri Lanka, the United National Party and Sri Lanka Freedom Party were established respectively in 1947 and 1951.

-

In Nepal, the Nepali Congress and the Communist Party of Nepal were established in 1949.


77

In South Asia, citizens prioritize provision of basic necessities as

the most essential attribute of democracy (Table 3).

South Asian meaning of democracy puts more emphasis on

equality and justice (Table 4).

However, despite normative commitments and experiences, there

are huge gaps between popular aspirations and ground realities:

√

The governments have not succeeded in meeting citizen’s

basic needs. Nearly 43.0% of South Asians live below the

$1.25 poverty line (World Bank, 2008)

√

Notwithstanding overall growth and development, disparities

between the rich and the poor have widened


88

Table 3: Most Essential Attribute of Democracy

Source: SDSA, p. 27


99

Table 4: Meaning of Democracy in South Asia

Source: SDSA, p. 27


1010

Governance failures of elected as well as non-elected

governments demonstrated by persistent problems of corruption

(Table 5) and weak rule of law (Table 6).

Undemocratic practices of democratically elected governments

earn low score on quality of democracy (Table 7).


As a result of failure to meet citizen’s expectations, incumbent governments tend to lose elections in South Asia√

In Bangladesh no incumbent government was re-elected since 1991 √

In India, all incumbent governments were defeated between 1989-

2004√

In Pakistan, during the ten years of civilian rule (1988-99), incumbent governments were always defeated

√

In Nepal’s most recent elections (2008), the Maoists emerged as the largest party, defeating mainstream parties which had traditionally dominated electoral democracy

1111

Table 5: Control of Corruption

Source: World Governance Indicators


Percentile Rank (0‐100)

0

20

40

60

80

100

1998 2009 1998 2009 1998 2009 1998 2009 1998 2009 1998 2009 1998 2009

BANGLADESH BHUTAN INDIA MALDIVES NEPAL PAKISTAN SRI LANKA

1212

Table 6: Rule of Law




0

20

40

60

80

100

1998

2009

1998

2009

1998

2009

1998

2009

1998

2009

1998

2009

1998

2009


Percentag

1313

Table 7: Voice and Accountability




0

20

40

60

80

100

1998

2009

1998

2009

1998

2009

1998

2009

1998

2009

1998

2009

1998

2009


Percen

tag

1414

At present all South Asian countries can be labelled as “electoral

democracy”, but all are passing through a critical period and need

reconstruction:

√

Pakistan: continued threat of military takeover

√

Bangladesh: the return of confrontational politics challenging

democratic renewal

√

Nepal: political stalemate thwarting peace process and

constitutionalism

√

Sri Lanka: the challenge of reconstructing citizenship for a minority

ethnic nationality group defeated in war

√

India: multi-pronged challenges from insurgency, corruption and

undemocratic practices of political institutions


1515

This presentation a broad overview of the continuing quest for

democracy across the region focusing on mainly five countries

(Table 8):

√

Bangladesh

√

India

√

Pakistan

√

Nepal

√

Sri Lanka


1616

1. Overview (Table 8: Polity in South Asia)1. Overview (Table 8: Polity in South Asia)

Indicators Bangladesh India Nepal Pakistan Sri Lanka

Independence26 March 1971 15 August

1947February 1951 (End of Rana rule)

14 August 1947

4 February 1948

Year of the present

constitution

1972 1950 1990 1973 1978

Government type

Parliamentary Parliamentary Parliamentary Parliamentary Presidential

Elections last held

2008 2009 2008 2008 2009

Women in parliament (%)

18.6 10.9 32.8 22.5 5.2

Transparency International

CPI 2010 (Rank: Score)

134 : 2.4 87 : 3.3 146 : 2.2 143 : 2.3 91 : 3.2

Freedom House Index 2010

(Status: Score)

Partly Free: 3.5 Free: 2.5 Partly Free: 4.0 Partly Free: 4.5 Partly Free: 4

1717

The recent emergence of democratic rule in the Maldives and

Bhutan are recognized but not analyzed here for systematic

comparison.

The presentation highlights the common challenges

√

The most important challenge is to democratize our electoral

democracies

√

Our democracy deficits have contributed to the emergence of

some powerful forces challenging the process of electoral

democracy

The presentation also identifies promising arenas in the struggle

to improve the quality of democracy.


1818

Many institutions of electoral democracy are functioning

undemocratically in South Asia, e.g.

√

Electoral system and processes are flawed

√

Political parties do not practice democracy

√

Fundamental freedoms guaranteed by law but not

realized in practice

√

Accountability is weak

2.2. The challenge of democratizing electoral democracyThe challenge of democratizing electoral democracy

1919

Electoral system and processes are flawed

√

State and partisan control as well as manipulation

√

Dominance of money and muscle power in mobilizing vote

√

Instrumental use of vote banks deepening identity politics

√

Marginalization of women and minorities as elected

representatives (Table 9)

√

Exclusion of subaltern constituencies and their concerns


2020

Table 9: Women’s Political Representation in South Asia

Source: IPU Website

Country Results last electionPercentage of

women in parliament

Percentage of women directly elected

Nepal 197 of 601 32.8 32.8 (Data for 2008)

Pakistan 77 of 342 22.5 4.9 (Data for 2008)

Bangladesh 64 of 345 18.6 5.5 (Data for 2008)

India 59 of 543 10.9 10.9 (No quota; Data for 2009)

Sri Lanka 12 of 225 5.2 5.2 (No quota; Data for 2010)


2121

Political parties do not practice democracy√

Party contestation for state power and not ideology or policy

√

Party financing breeds corruption

√

Patronage politics privileges money and musclemen

√

Dynastic leadership in major parties limits democratic recruitment

to the top position

-

In India, the Nehru family (INC)

-

In Bangladesh, the Mujib family

(AL) and the Zia family

(BNP)

-

In Sri Lanka, the Bandaranaike family

(SLFP) and the Rajapakse

family

(SLFP)

-

In Nepal, the Koirala family

(Nepali Congress)

-

In Pakistan, the Bhutto family (Pakistan People’s Party)

√

Lack of internal democracy (debate, election to different party posts)

drives away promising new leadership with alternative vision


2222

Fundamental freedoms guaranteed by law but not realized in practice√

Civil, political and economic rights enshrined in constitution and laws but implementation difficult. -

marginalized groups disadvantaged in realizing rights√

State violations and impunity in the name of security and order-

extra-judicial killings√

Debate and dissent sometimes limited by -

state control-

threats by religious extremists√

Minority rights and special measures provided by laws yet

minorities lack-

physical security-

equal opportunities√

The trend towards majoritarianism a threat to human rights


2323

Accountability is weak

√

Dominant executive leads to elected autocracy

√

Parliament lacks power to effectively scrutinize the

executive

√

Judiciary, particularly lower judiciary, is believed to be

partisan and open to financial inducement

√

Government agencies generally non-transparent and weakly accountable


2424

Agenda for political and governance reforms

√

Many political and governance reform proposals

developed and discussed in South Asia

√

However, reform proposals tend to receive low priority

from mainstream political parties;

so reforms primarily

advocated by civil society


2525

Democracy deficits in South Asia have contributed to the

emergence of three major forces challenging electoral

democracy.

√

The military

√

Ethnic/leftist insurgency

√

Religious extremists

3. Forces challenging electoral democracy

Armed conflict challenging the state in all South Asian

countries (Map 1)

2626Source: South Asia Terrorism Portal (SATP)

3. Forces challenging electoral democracy (Map 1)

2727

A.

The military:

The challenge from the military is in three arenas

√

Direct intervention

- Pakistan

√

Civilian control over the military

- Pakistan

-

Nepal

-

Bangladesh

√

Role of intelligence agencies manipulating domestic

politics and using extremist groups:

- Pakistan

-

Bangladesh


2828

B.

The ethnic/leftist insurgency

The failure of governments to democratically accommodate the

concerns of ethnic and subaltern groups led to armed insurgencies

The states in turn adopted undemocratic means (violence) against

insurgency

√

Ethnic nationalities have challenged the state in many countries

through armed insurgencies

- Pakistan

-

India

-

Bangladesh

-

Sri Lanka

√

Subaltern groups (Maoists/Naxalites) involved in prolonged armed

conflict in Nepal and India (Maps 2 and 3).


2929Source: South Asia Terrorism Portal


3030Source: South Asia Terrorism Portal


3131

C. Religious extremists

Religious extremists are also challenging the democratic and

secular order in

-

Pakistan (Map 4)

-

Bangladesh

-

India

-

Sri Lanka


3232Source: BBC (2009)


3333

Despite challenges there are promising arenas in the struggle to

improve the quality of democracy. However, there are tensions and

contestations.√

Mainstream parties are attempting to focus on constitutional and

political reforms to strengthen democracy

-

Pakistan

-

Bangladesh

-

Nepal

√

Judicial activism is promoting rights and good governance

though creating tension with other branches of government

-

India

-

Pakistan

-

Bangladesh

4.4. Promising arenas to improve the quality of democracy Promising arenas to improve the quality of democracy

3434

√

Media is bringing transparency and accountability to politics and

governance yet media ownership by private sector/business

threatens its independence

√

Civil society is championing reform proposals but there is tension

between civil and political society and space for autonomous civil

society is getting eroded

√

People’s movements for rights and justice (land, environment,

information) have highlighted new concerns and strategies with

mixed impact on mainstream parties

√

A subaltern constituency has emerged but their concerns are

being insufficiently accommodated within development policies

and the democratic process

4.4. Promising arenas to improve the quality of democracy Promising arenas to improve the quality of democracy

3535

5.5. ConclusionConclusion

The positive initiatives to improve the quality of democracy

need to be synergized to reconstruct a democracy that can

live upto the aspirations of its citizens

Electoral democracy needs to be transformed into social and

economic democracy to make it meaningful and sustainable

Such a democracy will serve to transform its voters into

citizens who will thereby have a stake in defending it against

extra-democratic challenges

3636

Thank You Thank You For For

Your AttentionYour Attention

Documents

Reconstructing Democracy in South Asia Cross … Jahan.pdf1 Rounaq Jahan Distinguished Fellow Centre for Policy Dialogue (CPD) Dhaka, Bangladesh Reconstructing Democracy in South Asia