Shaoni Chakraborty is a third year undergraduate student at the University of Ottawa. She is pursuing her Honours Bachelor of Health Sciences with a minor in Conflict Studies and Human Rights. She has worked on various projects during her time a student volunteer at the Forum, and is looking forward to learning more about the different aspects of federalism and public policy.
Background
India’s governance system has traditionally been characterised by a specific form of federalism known as “centralised federalism.” In contrast to the classic conception of federal government, in which constituent units operate with significant autonomy with explicitly delineated independent spheres of authority, India’s system grants substantial powers to the Central government, allowing it to intervene in state affairs. The roots of this federalism can be traced back to the drafting of the Indian constitution, which deliberately adopted a centralised federal design tailored to the political and economic conditions of the mid-20th century. For countries like India, federalism is not just an administrative necessity but a crucial factor in ensuring the nation’s survival. The framers of India’s constitution felt the need to establish a stronger centralised government given India’s vast diversity based on religion, language, caste and ethnicity. This approach was developed to address the post-independence challenges that India faced, specifically the social issues related to large-scale mobilisation, religious tensions, and violence caused by the partition of India and Pakistan in 1947. Its core objectives revolved around preserving national unity in the aftermath of Partition, which is why India is often seen as a one of the most significant and successful examples of “holding together” federalism.
In the rich tapestry of diversity that defines India, one of the significant challenges the government has grappled with is the intricate social stratification rooted in the caste system. This system, which is deeply ingrained in Indian society, is divided into five distinct classes, with the highest class being the Brahmins, consisting of priests and teachers. At the opposite end of the spectrum are the Dalits, often referred to as the “untouchables”, who were historically considered so low that they were excluded from formal caste placement and subjected to the most severe and unfair social and economic restrictions. In rural areas, Dalits faced exclusion from temples, village wells, and even tea shops. Regions with high rates of Dalit discrimination (such as the states of Rajasthan and Bihar) went to the extent of prohibiting Dalits from walking in daylight, deeming their shadows as sources of pollution. Furthermore, the Dalits’ attempts to improve their situation were frequently met with violence, including assault, rape, and murder, as the upper castes felt threatened by their quest for equality. While there has been some progress in reducing the cruel treatment inflicted upon the Dalits over time, such injustices still persist in contemporary Indian society.
Views on federalism’s impact on the caste system, especially for Dalits, vary. Some assert that the arrival of federalism has proven beneficial for Dalits, enhancing their opportunities for political leadership and their ability to advocate for their rights. For India to establish itself as an economic powerhouse, it must have a policy framework that empowers the historically marginalised “lower” castes, who have endured centuries of caste-based oppression. On the other hand, some argue that federalism, along with the expansion of quotas for underrepresented castes, exacerbates the ostracization. They contend that reserved seats for Dalits might inadvertently foster social fragmentation and argue that it is more important to ensure that Dalit communities attain greater social capital and provision for education and future employment opportunities. The debate thus revolves around finding the most effective means to uplift historically marginalised communities while fostering social cohesion and equitable access to opportunities.
Federalism and Dalit Empowerment
At the heart of federalism lies a fundamental principle: the creation of smaller, more localised forms of government that can effectively address the unique needs and intricacies of each region within a country, while maintaining a unified national whole. With the arrival of decentralisation in India, the Dalit community has experienced significant improvements to their rights and freedoms.
The increase in significant representation in government has enhanced Dalits’ access to the legislative, judicial, and executive branches at all levels of governance, from the national to the local level. This approach facilitates the equitable distribution of rights and enforces mandatory proportional representation, thus being a powerful mechanism to advance the well-being and rights of Dalits.
Initially, Dalits’ involvement in government in federal India was limited, but with time, Dalit representatives have discovered their voices within the framework of reserved seats. Currently, there are approximately 84 seats designated for scheduled castes in the Lok Sabha (the parliamentary house). These reservations have empowered Dalits to voice their concerns and fostered collective efforts to secure their rights in accessing essential services and resources. Remarkably, their approach to addressing issues has shifted from confrontation and resistance to constructive dialogue and collaborative problem-solving, specifically among citizens in rural villages. These positive shifts have primarily occurred in areas where civil society actively promotes awareness among Dalits and marginalised communities.
The establishment of the Panchayati Raj System, a local self-government system for rural villages characterised by a decentralised decision-making process, has been crucial for Dalits’ empowerment. This form of decentralised local government has enabled Dalits to participate meaningfully in decision-making processes on policies and services that directly impact on them. It has allowed for the delegation of authority and resources to the level closest to the individuals who will benefit from them. Local citizens gain a more significant role in shaping public policies and the delivery of essential services. By encouraging the delivery of services and benefits at the grassroots level, local citizens gain a more significant role in shaping public policies and taking part in decision-making. The implementation of the system has emerged as a powerful tool for advancing social justice and reducing inequality. As previously mentioned, the reservation of seats in village councils – or panchayats – for women, lower castes, and tribal groups has significantly bolstered the political influence of these marginalised communities. Quotas for various caste groups have been enshrined in law, amplifying the system’s impact on promoting equity and inclusivity.
Challenges with Dalits and Decentralisation
Every governance innovation, including federalism, brings with it various challenges. Researchers have highlighted certain concerns related to federalism’s impact on marginalised groups in India, shedding light on how the governance model may in fact exacerbate the difficulties faced by the Dalit community rather than offering them substantial benefits.
Several instances of violence targeting the Dalit community have prompted some authors to raise questions about the role of decentralisation in this context. Dominant castes, seeking to preserve their privileges, often respond with punitive actions to “teach Dalits their place.” Unfortunately, instances of violence perpetrated by dominant castes against Dalits are seldom met with appropriate penalties by the state. In this context, today’s Dalits may find themselves in a more precarious situation than in the past. A drawback of federalism is its potential to impede nationwide reforms, maintaining the status quo and hindering comprehensive changes. Unlike unitary states, where centralized laws apply equally across the whole territory, federalism allows for spoilers to obstruct national directives. The dispersion of power among states provides adversaries with more opportunities to impede or disregard national directives for reform. While violence rooted in caste distinctions has always been a grim reality, the current landscape has seen it take on overtly political dimensions. In rural India, power dynamics are heavily centred around the caste system and land ownership, with land disputes being a significant concern. Furthermore, whenever Dalit agricultural labourers seek to advocate for fair wages, they frequently encounter violence at the hands of land-owning classes. Researchers worry that Dalits’ increased involvement in political positions due to decentralisation practices has led to more painful experiences for their community as a whole.
Furthermore, there are valid concerns regarding the effectiveness of federalism in addressing the most basic needs of Dalits. Firstly, a notable disparity exists between the priorities of ordinary Dalits and their political leaders. While Dalit leaders focus on issues like state restructuring, the establishment of Dalit provinces, and securing Dalit rights within the constitution, ordinary Dalits have more basic concerns that have yet to be addressed. A large proportion of Dalit locals are more preoccupied with poverty alleviation and sustaining their livelihoods, with federalism being much further down the list of priorities. The everyday struggles of ordinary Dalits revolve around putting food on their tables rather than securing a more substantial role in state institutions. The federal system, while allowing states autonomy in creating laws, may also inadvertently harm minority populations. Dalit leaders in national politics often align with higher-caste elites, hindering genuine Dalit representation. Inclusive policies are not implemented, with political parties showing a lack of commitment to Dalit representation, relying on proportional quotas instead of encouraging direct participation. Meaningful participation takes a backseat, with selections influenced by personal favour rather than competence and vision. Division among Dalit leaders by political ideology hampers effective advocacy and a comprehensive understanding of communal issues. Internal disputes further impede a unified Dalit agenda, hindering collective advocacy. Political parties’ lack of common interests and common positions on Dalit issues results in symbolic gestures rather than genuine representation. As a consequence, Dalit communities do not obtain the resources and representation they need. Instead, benefits are enjoyed by a select group of Dalit leaders who seek to gain power and enjoy positions in these provinces, with the majority of Dalits left without a meaningful voice to influence policy.
Focus on Dalit Women in Politics
While there has been extensive analysis of the benefits and consequences of federalism on Dalits, it is essential to place particular emphasis on Dalit women. Their experiences differ significantly, as they often encounter heightened levels of violence and discrimination resulting from the intersection of caste and gender.
Dalit women have experienced significant difficulty in integrating with the Panchayati Raj System. Despite the quota system resulting in over 100,000 Dalit women holding elected positions nationwide, this has not translated into meaningful political participation for most. According to some gender experts, the establishment of multiple subnational units restricts the authority of the central government and hampers its capacity to enact redistributive social policies to help women across the country. Varying state interpretations and enforcement of policies related to Dalit women’s welfare can lead to inconsistent support and opportunities. Recent research has exposed instances where dominant castes manipulate elections by nominating Dalit women as proxy candidates. The strategic use of proxy candidature empowers both dominant caste males and Dalit men, enabling them to further their own interests at the expense of Dalit women. They exploit the vulnerabilities of these women, portraying them as ‘lower’ caste individuals lacking education, financially dependent on dominant castes, and incapable of covering election expenses.
There are of course Dalit women who bravely seek to effect change by running for public office. But from the moment they file their nominations to the announcement of election results, they encounter several roadblocks. These hurdles include verbal and sexual abuse, belittling of their political competence, harassment, and threats. In the federal system, local biases and prejudices may intensify due to the heightened governing power at the local level. With more power given to local bodies, they can make independent decisions to discriminate against women without interference from the federal government. This can affect the opportunities available to Dalit women and hinder their ability to influence local governance systems. Even once a Dalit woman is elected, only one-third of women can assert their political rights independently. Due to the low social, educational, economic and gender status of these women, they are usually politically overpowered easily by dominant forces. Dalit women attempt to engage actively but are often silenced, disregarded, subjected to ‘no-confidence’ motions, denied essential information, and hindered in performing their duties. These obstacles thwart Dalit women’s ability to wield effective political authority, thereby compromising their capacity to deliver development outcomes that are sensitive to both caste and gender disparities. Consequently, political participation through quotas has – in the absence of complementary measures – the potential to reinforce caste and gender hierarchies, dissuading Dalit women from engaging effectively in future political processes.
It is important to take extra measures to improve the situation of Dalit women in politics. Methods to facilitate women’s engagement in political decision-making processes include promoting gender-sensitive parliaments, prohibiting the use of gender stereotypes, and promoting positive media coverage. With respect to the federal system, there are also some improvements and regulations that need to be made to help Dalit women in politics. Mandating quotas for women’s representation and ensuring that political parties are actively promoting women candidates in local elections is crucial for women’s participation. Providing financial support, training and educational resources to women supports them to be strong candidates and stand against discrimination. Finally, changing the narrative on women, by making gender-sensitive policies, bringing awareness on the societal norms that perpetuate gender inequality, and ultimately fostering broader attitudinal change, will all be necessary to ensure that Dalit women achieve the meaning representation that will enable them to influence decision making on issues that affect their lives.
Conclusion
This blog has examined the strengths and weaknesses of the Indian federal system in its impact on the Dalit community. Increased political representation has empowered Dalits, enabling them to advocate for their rights and access essential resources. However, the federal structure has also provided a framework that has allowed certain dominant caste groups to persist in discriminating against Dalits, creating obstacles for their entry into the political arena. This challenge is particularly pronounced for Dalit women, who face heightened aggression due to entrenched gender inequality in these constituencies. Addressing the root cause of the issue is crucial to assisting the Dalit community. Caste-based inequality remains a pervasive influence in the lives of many Hindus in India, perpetuating discrimination against Dalits. It is imperative to enhance education and awareness about this discrimination and the resulting injustices faced by Dalits, ultimately reshaping societal perspectives and reducing caste-based discrimination and violence. The federal system may be able to help with this goal, by allowing for bottom-up change, where locals, states and different sectors collaborate to improve policies to help Dalits. These can start through democratic reforms, by upgrading election laws, implementing fair redistricting, incorporating nonpartisan structures in governing institutions, ensuring fairness in resource distribution. By adopting a holistic approach that considers these various aspects, we can cultivate comprehensive growth and enhance the well-being of the Indian Dalit community.
The author thanks Jamie Thomas and Liam Whittington for their comments on earlier drafts of this article.
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