Political management of ethnic diversity: India 1947 - 1984

Abstract

Political management of ethnic diversity is a worldwide problem and for India with its vast and diverse population it has been a recurrent issue. This study has sought to place the importance of ethnicity in Indian politics in a theoretical and global context and to examine the management of ethnic diversity by Central government through the constitutional structure and policies of nation-building. The role of the State has been considered both in an examination of the constitutional framework within which the State elite works, and the role of the State elite in nation-building and in the political management of ethnic diversity. The study has endeavoured to outline the constitutional framework to discover the way ethnic group aspirations have been treated in the Constitution. To this end an examination of Centre-state relations as outlined by the Constitution was undertaken. From this theoretical basis it was sought to discover how political management has worked in reality through an analysis of the role of the State elite and by a comparison of two management phases - those of Nehru and Mrs Gandhi. An historical approach was used to trace the origins of the Constitution, the sources of attitudes, beliefs and experience which influenced its framers, and the ways in which these were manifested. It was also necessary to identify an appropriate theoretical base for understanding ethnicity and the behaviour of ethnic groups. Two approaches to nation-building, i.e., all-India nationalism and ethnic nationalism, were considered both theoretically and historically. Findings indicate that the federal nature of the Indian Constitution provided a mechanism for a significant measure of autonomy for the states. Once the states were reorganised as essentially ethnic units in 1956 this meant that the constitutional structure provided a potential avenue for the fulfilment of ethnic group aspirations for a significant degree of autonomy and control of their own affairs. However, the constitutional structure also provided mechanisms for the potential concentration of power at the Centre and the reduction of state autonomy. The leadership's emphasis on uniting India throughout the period studied placed constraints on the degree of autonomy at the state level. The change in leadership style between the two phases led the states to believe that centralization was increasing and that their autonomy was being eroded. Similarly the way the states viewed their treatment by the Centre in ethnic terms had important effects on Centre-state relations and ethnic management. The views of the states on these matters were found to be more important to the management of ethnic diversity than the substantive reality. Differences in philosophy and management styles during the two phases especially in relation to power sharing between Central and state governments and the response to these different approaches have provided important lessons for future management. The analysis undertaken suggests that stable political integration of India's ethnic groups can only occur if the persistence of ethnic differences is recognised and the constitutional structure is allowed to function in a manner which enables them to realize their aspirations for a meaningful degree of autonomy and a significant role in the political system.