World Conference on Recreating South Asia Democracy, Social Justice and Sustainable Development India International Centre (IIC), 24-26 26 February, 2011 Reconstructing Democracy in South Asia Cross country Presentation Rounaq Jahan Distinguished Fellow Centre for Policy Dialogue (CPD) Dhaka, Bangladesh New Delhi: 25 February, 2011 1
Table of Content 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 2
1. Overview 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). 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 3
1. Overview Table 1: Support for Democracy Source: SDSA, p. 12 4
1. Overview Table 2: Overwhelming Support for Democracy Source: SDSA, p. 11 Source: SDSA, p. 11 5
1. Overview 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. 6
1. Overview 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 7
1. Overview Table 3: Most Essential Attribute of Democracy Source: SDSA, p. 27 8
1. Overview Table 4: Meaning of Democracy in South Asia Source: SDSA, p. 27 9
1. Overview 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 10
1. Overview Table 5: Control of Corruption Percentile Rank (0 100) 100 80 60 40 20 0 1998 2009 1998 2009 1998 2009 1998 2009 1998 2009 1998 2009 1998 2009 BANGLADESH BHUTAN INDIA MALDIVES NEPAL PAKISTAN SRI LANKA Source: World Governance Indicators 11
1. Overview Table 6: Rule of Law Percentile Rank (0 100) 100 80 60 40 20 0 1998 2009 1998 Percentag 2009 1998 2009 1998 2009 1998 2009 1998 2009 1998 2009 BANGLADESH BHUTAN INDIA MALDIVES NEPAL PAKISTAN SRI LANKA Source: World Governance Indicators 12
1. Overview Table 7: Voice and Accountability Percentile Rank (0 100) 100 80 60 40 20 0 1998 2009 1998 Percentag 2009 1998 2009 1998 2009 1998 2009 1998 2009 1998 2009 BANGLADESH BHUTAN INDIA MALDIVES NEPAL PAKISTAN SRI LANKA Source: World Governance Indicators 13
1. Overview 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 14
1. Overview 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 15
1. Overview (Table 8: Polity in South Asia) Indicators Bangladesh India Nepal Pakistan Sri Lanka Independence Year of the present constitution Government type Elections last held Women in parliament (%) Transparency International CPI 2010 (Rank: Score) Freedom House Index 2010 (Status: Score) 26 March 1971 15 August 1947 February 1951 (End of Rana rule) 14 August 1947 4 February 1948 1972 1950 1990 1973 1978 Parliamentary Parliamentary Parliamentary Parliamentary Presidential 2008 2009 2008 2008 2009 18.6 10.9 32.8 22.5 5.2 134 : 2.4 87 : 3.3 146 : 2.2 143 : 2.3 91 : 3.2 Partly Free: 3.5 Free: 2.5 Partly Free: 4.0 Partly Free: 4.5 Partly Free: 4 16
1. Overview 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. 17
2. The challenge of democratizing electoral democracy 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 18
2. The challenge of democratizing electoral democracy 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 19
2. The challenge of democratizing electoral democracy Table 9: Women s Political Representation in South Asia Country Nepal Pakistan Bangladesh Results last election Percentage of women in parliament Percentage of women directly elected 197 of 601 32.8 32.8 (Data for 2008) 77 of 342 22.5 4.9 (Data for 2008) 64 of 345 18.6 5.5 (Data for 2008) India 59 of 543 10.9 Sri Lanka 12 of 225 5.2 Source: IPU Website 10.9 (No quota; Data for 2009) 5.2 (No quota; Data for 2010) 20
2. The challenge of democratizing electoral democracy 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 21
2. The challenge of democratizing electoral democracy 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 22
2. The challenge of democratizing electoral democracy 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 23
2. The challenge of democratizing electoral democracy 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 24
3. Forces challenging electoral democracy Democracy deficits in South Asia have contributed to the emergence of three major forces challenging electoral democracy. The military Ethnic/leftist insurgency Religious extremists Armed conflict challenging the state in all South Asian countries (Map 1) 25
3. Forces challenging electoral democracy (Map 1) Source: South Asia Terrorism Portal (SATP) 26
3. Forces challenging electoral democracy 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 27
3. Forces challenging electoral democracy 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). 28
3. Forces challenging electoral democracy (Map 2) Source: South Asia Terrorism Portal 29
3. Forces challenging electoral democracy (Map 3) Source: South Asia Terrorism Portal 30
3. Forces challenging electoral democracy C. Religious extremists Religious extremists are also challenging the democratic and secular order in - Pakistan (Map 4) - Bangladesh - India - Sri Lanka 31
3. Forces challenging electoral democracy (Map 4) Source: BBC (2009) 32
4. Promising arenas to improve the quality of democracy 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 33
4. Promising arenas to improve the quality of democracy 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 34
5. Conclusion 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 35
Thank You For Your Attention 36