CTIA
GING POLTTICAL REPRESENTATION IN INDIA
]1
CHANGN*C
'POLTNCAL
REPRESENTATION
IN INDfA
V. A. Pri Pananitiker Arun Sud
Under the Auspices
of
CENTRE FOR POLICY RESEARCH
UPPAL PUBI.,;ISHINC HOUSE New Delhi
UPPAL,PUBt,ISHIN.G HOUSE 3,
Ansari. Ro4d, Daryaganj, New D:lhi--:110002 8, Yashwant Placo; Chasakyepuri, Nsw Delhi"- 110021
.O CENTRE FOR POLICY RESEARCH NEW DELHI 1983
PRINTED IN INDIA House' Publisbed by B.S. Uppal; Uppal Publishing New Delhi.l10002 aud'SriuFd by Kamla Printers' 397'D, Bhajan Pura, Delbi-ll0l53'
FOREWORD
'The political institutions in the country have cvoked great ,,ileal of interest in recent years because of their cruciality to the "success of the Iodian democratic proccsses' It is of equal impordimensions "tance to understand about the sociological and other ins' these institutions. In particular whom do the kcy political
'of 'titutions represent? Wbat kind of changes are taking place tn thc configuiation of political powcr in India? The quest is enorif partially mous but would undoubtedly be vcry rewarding even .answered.
The prcscnt study is focus on the vital political institution' ''viz., the Lok Sabha. No single formal institution is, as crucial 'for the evolution of the Indian polity as the Lok Sabha' Many and important changes have taken placc in the composition .character of the Lok Sabha over the sevcn elcctions to it since study of thesc developments and their interIndependencc.
oi irntnroru value to the understanding of 'thc changing sociology of Indian politics'
pr.o,ioo would
be
The study of the Changing Political Representation io Jndia is an effort in that direction. V.A. Pai Panandiker Director Centre for Policy Rcsearch New Delhi December, 1982.
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PREFACE
In
undertaking the prcsent study, our attempt was to *€xamine the broad direction of changes taking place in the ..composition of the Lok Sabba, the directly clected Lower House of the Indian Parliament. Perhaps no other institution {epresents the changcs taking place io the Indian body polity -as much as tDe Lok Sabha does. For pursuing our study, we had to rcly entirely on thc data released by the Lok Sabha Secretariat. We haYe not bcen able ,{o recheck the data for variety of reasong. We do believe that the data is reasonably reliable and adequate for the limited purposes of thc present studY. While we have broadly interpreted the emerging changes in representation according to our own assessment of them, we ,.realize that the significance of the changes taking place may be enormously greater. The relationship between the emerging pattern ol representation and the political direction of the country perhaps deserve closer look and certainly greater analysis. Hopefully more researcb studies in the area will emerge in the near future. We are greatly indcbted to Sbri P.K. Saini for putting together the initial data for the study. At the Centre for policy Research, Shri Y.L. Nangia, Chief, Administrative Services, Shri 'Trimbak Rao are amongst the several persons who helped
(ii) grcat deal iu seeing thc publication througb, We acknorlcdga our gratcful thanks to thcm. Tbc findings and thc conclusions arc catircly of thc eulhors and they do not Daccsrarily rcprcsetrt tbc viewr of tbe Ccntrc
for Policy
Rcscarch.
:t,i New Delhi,
Deceober, 1982.
Pai Palaodikcr
Arun Sud
LIsr oh''iii'A€ilrvrs
't'
24
in tbe first,
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fr9$$T€NTS
Pages
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53
/o 92
l0l Bibliogrlpby
.. dndex
139
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CHAPTER
INTNODUCTION
conposi' The qucction of parliamentary representation an-d ttu ia fudamontal and perennial problem of political isport'
Srdcalty political tePresentstion detcrmincs the firnetional J"r".*t of tUe potity- and in that sense becotles one of ttie cctrtftl irso6$ of tbc political ptocesses in tbo eountry' &cccpf€d psflance, reprcsentation meatrs lolpltrr of rercpresentation'and hirtorically speaking the gntire ^theory prteltar;on has besir li*ed with tbe basic idea of self'govern' bappons L*,* of evety ,man's right to bave say inofwhat gov€rsnegt to him. The grdyfth of the reptessntativ system althouSh testides to an txtent this will towards self-governance many parts qf the lYortd havc political systcms not bascd on we understand tb€m' repres(ntatife institutiors
In
de, ho*crer, many crilics of the representativg tfteo-ry arquins tbat' no governrncat really refeescats; that q' t6u!! rei.r"-/*d"e go\Fnment si*ply does not eristl' Even se' it ha$ #o urosCly aeeprcd thal despite all its inadeqqecie* the Thcre
i&md'"l*n
dtreldb"ststto 1.
Scc
is ths bcst iatitptiooal mo& of
arai&l&lc todaY.
The Coneept of $9pres.fitati'.tr 196?' p. tL Uliversity of Cilifornia
Pittin; Iiesn$ Feniclcl,
Calif.,
fl{.f'dt
\\
CHANGINC POI,ITICAL REPRESENTATION IN TNDIA
to
political svstem in India is the parliament especially the Lok Sabha nhich heralds tbe real political power configuration of the country. Siqce the first elections to the Lok Sabha in l95I-52, the Indian parliament bas become the corne{stone of the political processes reflecting both the continuance and change taking place in the Indian body polity. Nothing is more symptomatic of tlis process than the Lok Sabha elections of 1977 and 1980. Ttiese elections testiry to the vibrancy of the Parliamentary insritutions and rhe politicat processes in the country. They also raise whole hoet of Central
the
questronS.
What pattern of leadersbip and rcpresenlatjon is emerging out of this coalescence of tradition and change in such fluid
situation
electorate
Who dre rhe people being
to
preside.,orer,
tbeif
elected by the Indien destinies Hsve suqcesrive
thirty yer.rs brought about any significant changc iqr the representatjon pattern, or are thc same.class Ef people bcing thrown up after, evcry election Wf,at sociaj come. f*T r1,0 more imporranr, wbat are :::ir_:::-1::.t!.r rne groups they ar€ associated with'and lrhose interests do fhey electlon3. over the past
arliculare ?,.Hale.th.irty yeqrs
of
modernisation brcgght: about any chn$ge iu the socro.ecoxorDjc base gf the new teadcrs.hip? yqluop and ideologie.s does it proplgare
Y_hT dl,.bo: well,,is it set befote .it
?r
eguipped
to fulfil
anO aUevp tho..- challenging tasks ..
:.. ,r Dot tbe intention of this sludy to attempt to arower .- ,]l.if all
L::!:l'l
I" ll. foilowing p,g., un uri,,ip,"i, no*.uor, lT:"^ Delng made to trace the socio.economic backgrourfs of the rul_ inqlartymembers,in the First, riftfr, Sixtl'aiJ levenb rok
at{ompt to detineate broaAfv ,f,. p",t.Jr- of partia.11j:1r,* leadership emerging in India. ff,ls ni, U.eo d"": ;;;l l:lluty rererencc to the age, occupation, sex, educatiq.n and past legisf
lative. expqrieqcp of .rhe mesbeis uestion. Our criteria for tho selectiqn
Lok
"l;;;#;;;sabhasir of only four.r,i rtre sevra
Sabhas so far, has locn.1hat .u.f oi ttr".ei preceoed qr followeiJ, thodgh not in very stlict seqs.e, an brupi'or.,.sudddn .ro.t. disconrinuance,' in the biief rlii inelr,,*1,
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{STRODUCTION
Lok Sabha has been selected because it was {ndia. The First -after the first general elections in the country constituted the Ffth, br""rrt" it followed major realignment of political forces in the:forho of tbe Congress split in" 1969; the Sixth' be' cairse, for thc frst tiind in the parliamentary hirtory of India' {lon-Consfess goverment was yoted to power and securely lodged atthi Centre; and finally.thg Seventh br,the current !.oi Sabba.wh*c. the Congress Party of Mrs' Gandhi in ite qrew ,incariatioo got back into power.r ri
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An analysis of the age composition of the'tuling elite in the 'four Lok Sabhrs revells that the age-gcoups 36-50 and 5l'60 have, by and large, large, remained dominant and succeeded. in maindaining their share in all the four Lok Sabhas under study. However, it i$ an important finding that the percentage of the younger age-group (25-35) has been gradualty displaced by the older age-group (61 and above) between the First and SeveDtb l-ok Sabha. The percentage share of membetship of the former deoreased from 17.26 per cent in the First to 6.73 per cent il 4he Sixth Lok Slbha, and 8.47 per ceot in the Seventb LoE Sabha.
The oscillating shares of the two groupr arc showo in Diagram I. The salience of the trends portrayed in this diagrao
any serious observer oflndian polican hardly be overlooked tics. As regards the older age politicians, it may be partly a bis-. torica'l process especially as the persons entering the First Lok Sabha were product of the struggle for independence. Evea eo,
the question which inevitably arises is whether the political pro."*r., are moving away from the young or whetber the
'young are less involved
in
these processcs.
b:
said about the evsr dwindling fortunes of the youngest (25-35) age group' but thc first evEr increase in the repersentation of this group in tbc Seveqtb Lok Sabha over its preiecessor just might be the avant'garde of -oew age compositiotr patteln in Indian politics. Nothing rnuch ctn as yet
.Age Composition of thE Ruling Party in tbe First
review
of
the age compositioa
Lot Srbhr
of the Indiar Nrtioaal
€cngrets which en:rged as thl ruling p:trty after the gonerat cleotions of 1952 shows thlt out of total of 336 perty meqberc in the Lok Sabha, 58 b:longed to the 25'35 group; 148 to tbe 36-50 group; 105 to th3 5l'60 gro'rp; anl 24 to ths'61 aod above'group (sel Table 2).
mrjrrity of the m:mbers (appro' .ximrtely 76 prr cent) b:longed to thc two midJle'age groutt, Thus, it can
b: se:n thrt
6-
CHANCING POLITTCAL NTIITSTTTATICN
--
25-15 YEA|E At{o
tN INDIA"
AtsoVE
-6rY!lRS t.
r,
E'
RFlt{' gXTD SEVt|rTrr to( AEttA Rtpffs€t{?A?tolv oF ?9-39 YEARS AGE GROUP ArO T.hE 6t YE.AnS t" .".ir0 l*th rat 6n0up oF r$ tur-irtc pAnry t{ T}tr FnsI flFn+. tnlr AI0 tHE stytilTit. or seaxrs FrI}sT
t.
Di4ron Nr.
AFP coMPoslrloN
Table .9r.
No,
^*rt
Age GrouP
,",;Io*;#otrs
Nunber
in the First
Percentuge
l.
25 to 35 years
58
17.26
t,
36 to 50 years
148
44.0s
5l
106
31.54
24
7.15
336
100.00
to 60 years
6'i years and above Tota!
of 44 05
rsc troupr, *ith their precentage shares the younger and 31.54 ru*o.cliuoty. Oqt ofa total 336 seats' them izi-lsi ""oit urO"tior and above) groups had between these two ;; rn;" theq. ?t mei* or jW 2a per cen!' -!,etween was more than (25'35) gipup yourgpr thE of groups the sharp Ioubl. thut of thp older (6 lsl gbovp) group' 3G50 end
of €ooposition agc'vf rcgardt ar The general impreseion tbe. people of thlt saltta-it mf Fir;; the il pu.tv trr, ,otio'g elitc ia the y;;t;;;;". constitutec the bulkof the ruling not so well re' country. The older group (61 and abow) was
p,"s"ntedinthehouseeithe p,"s"ntedinthehouseeitherbecausefewer rbecausefewerseniorpeople seniorpeoplewere were *ith favotu ensased in oolitics at that time or they did not:Sod group the bven vodnger reasons' il;i;;;,ui. io,l*ttu,.u.' reeresetrled..gr::l-{: iis-ls) .uooot be safelv counted as well its numb-ers'rvhich ls itt "uirr it had 58 legislators from amongst .r i': ., rulruq" the grsmbership of i.r.- iU^^ l? per cent of the total 1,,' ,party in the First Lok Sabha.
,.
Age Composltion of the Roling Party in
In the Mid'Term polls of l9?l
tle Fifth Lok
Sabha
also the Indian National
as m8 congr"ss: Pa*y cnerged victorious and returned
&9
cgANGrNc por.trtcAt. RBpRE:BNraNtoN
INDIA
340 oembers to tbe Lok Sabta. Age Composirion of tho of th€ ruling party in tha Fifih fot Sapla can b€ .f,€tnters seet fro Trble 3. Trble
Sr.
No.
Ruling porty hlembers
Age Gloap
Lok Sabha
Number
I.
in thc Fifth
Perceatcge
27
7.94
2.
to 35 pcars 36 to 50 years
r58
46.47
3.
5l to 60 years
10t
29.71
54
15.88
25
6l
yearr and
ab ove
Total
10u.00
Aa o*lysis of the age group composition of the Indian Natipr*l Cogress pany in rhe Fifrb Lok Sebha, once again 6hows similar trend as in the First Lok $*bha, More lhan 76 per cent of the totsl ruling party mcmbers were from the two middle age groups (36-50 and jl-60) with 46.47 and 29.71
''
pr
cent as th€ir reipective shsrcs.
The combined share of the youngcr (25-35) and the older ql and above) groups, once again, *as less than 24 per cent of toral Congress alembers in the Lok Sabha. Bui this time, 1te there ,ryas marled diference as regards their relative shates. Thc,ruder of the youiiger age gr0up had corne down to onebalf that of the older group. Interestingly, thc older age group ltom positidn of being one-tbird of the younger group in tbs Firet Lok SaUha, had becomc cxaclly its aouble in tnl Fifth l"o* Sabha. lt is thus significent to note lhal the expansion of tbia age-lroup had been efeeted purety at the cost aF-gloup. In coqtro$t, tle niAAlc' greup, :h.*ryetr 3f bad sucoeadcd in mlintaining tbcif iharc. Thits, is "g" clcar that dutiag gnn of neatly two dccadas bctwcen the Fir*t Gcoercal
Hllcf,il |&d thc MiC-Tcnn poll of l9?l no considcrable liad *cn lacc in th6 Agc composition of tbe ruling elite in the
*Acl col,t PsrTIol{
.Lok $abta, cxeept tbat t!€ strcagth se8ior nad dldcr politicians had swelled mainly at the cost of the youngpr ooes.
3ge ComporitloB of the Rutiq Plrty in the Sixth Lok Sabh:.
The Sixth Lok Sabha elections are by far thc most impor'tant eveot in the hisiory of independent Itidia for they also
marked the cnd of an era of Congress Party's dominaince at'thc 'Centre as well as in most of the States. For thc frrst time nonCongress goveranent was formcd by the Janata Party which was itself constiiuted by tbe merger of. four parties* -the Congrcss (0), Jan Sangh, Bhartiya Lok Dal and tbe Socialist Party, just a few weeks before the commeuccment of the Lok Sabha elections.
The composition of :is shown in Table 4'
the Sixth Lok
Sabha according
to
ag€
Tabre ^Sr. No.
.,Age Group
J.
the Sixth
l9
6.75
tt7 to 50 ycars 92 51 to 60 years 6l years and Above 51
4r.63
25 to 35 Years '7
Ruling PartY Membets in Lok Sabha
36
Total
281
32.75 18.87 100.00
Since for rha 6rst time non-Congress Party came to power at tbe Centre which was itself formed at very shoit notice' it -was erpected that the respective shares of the four age'groups might change consideiably. However, as Table indioates, the
€rrliet trcnd, both in tesplct of tha combiited share of the
Tht Congress for Democracy (CFD) joined th€ Janata amdlgam late in February, 197?. Since formal merger of thesc parti€s could not be efrectod bbfore 1n'fay l, tyn, they contest&l the March 1977 elections on BLD chctton symbol.
"trt io
cttlwclxc
pot ITICAL RBPsE$EtltATIoN IN INDIA
ad
5l'60);.snd'the.decline in the percentag€ sha{e of tbe: younger Sreup contlnqed in the5l-60 age groupsSrrth Lok Sabba. Once asain the 36'50 and -ctnt of tbs total between themr'accounted fir nearly 2,3 pet Jbnata Party members, .while the combihed shsres of thc !ounger (25-35) and the older (61 and above) $roups corilinue lo be the same what it was in the First Lok Sabha. As regards the proportionate shares of these two groops, the sharc of^ the younger group from being exactly 50 per cent of that of thc olJer group in the Fifth Lok Sabha has further slumped to' nearly one-third of tbat of the older group, iddle age grE.ups (36'50
It
is thus clear that the change bf the party ruling at thc' national level after tlrirty years has not necessarily brought about aay change in the age composition of. the rlling elite in the country. The middle age groups (36-50 and 5l'6C) stilL dominate the scene with nearly ?5 per cent of the memberpshiP between tbem and continue to be the most favoured age'groups' rhite the younger rnembers (25-35) are still gtadualtry being.
replaced by the older (61 and above) ones.
Age Codpositirn of the rnlin3
Prrty ln the
Seventh Lok Sabhrr
The January 1980 Mid-Term Polls to the Lok Sabha once again brought the Congress Party as the majority party in the
Lok Sabha in the lorm of Congress (l). From purely research point of view it would be interesting to. probe whether the Congrese Party High Command did feel the oeqessity of fielding younger set of candidates after its 6rst..ev€r experience ofoccupying the back benches in the House duting the Janata regime. The distribution of the members of tlie ruling party in the Severlth Lok Sabha by their age-groups is shown in table 5-
thus indicates that thc combined sbare of the young* cst (25 to 35 years) and tbQ. oldest (61 years and above) regis* t:red an increase to becom€ aearly 28 per cent compared lo 2t per cent or less in all thc other Lok Sabhas under examination. comparative apalysis shgws that from the Fifth to the-Sixth Lok Sabbs. the share-of thcsc groups incicascd by lbou! 7.5 pcr neatly 10 p€r cFnt. c€ot aod from tbc Sixth to thc Scveath
Table
ll
ACD CoMPOSITION
Table Sr. No.
Members in Ruling Porty 'Lok Sabha
Age-Group
the
Percentagt
Number
I.
25
to 35 years
29
8.47
2."
36
50 years
143
41.54
J.
5l to
60 years
105
30.56
4.
6l years and Above
67
19.43
344
100.00
Total
It is interesting to
note
Sevcnth
that in the Seventh Lok Sabha' the
(25 to 35 years) looked rclalive share of thc youngest up foJ thc first time since the inceplion of this House, registering an increase of nearly 26 per ccnt over its predecessor. On combined share of thc middle age the other hand, groups (36 to 50 years, and 5l to 60 years) did decrease margi' nally, that of the oldest group continued the upward ascent aa' in all the previous Lok Sabhas. The signi6cance of tbis pheno* menon needs to be undcrlitled in thc scn$e that no matter other age'groups'. what happcns to thc relativc sbares of years qn4 above) continues to grow with the oldest group each succcssive election to the Lok Sabha.
Fluctuations in tbe relativo sh*res of are shown in Diagram IL
tbe four
age'groups'
II,
the representation of the youtrgas! Lok the downbilt ever
As shown in Diagram
age-group had bcel on Sabha. It is only in the Seventh Lok Sabha that it has slightly share of the 36 to 50 ycars gro-up' moved upwards. dcclined sbosiderably ffpsr the Fifth to the $ixth lok Sebha' level in thc Sownth. It and has rernained at about the may bs intcresting to note that there was app(oxigratGly an cqual grin of rcpresantation from the Fifth to the $it(th Lok. group' as thc loss suffercd by the Sabbrbythe 5t-60
36-5Q
group ovcr
tbc
period of time.
In
the
CHANCING POLTTICAL RSPRESBNTATION
IN INDIA
?5'$ rt'rn: r-'10 wans it-co velrs
--r-.-'-61 YTARS ANO ABOvt
,v!
{,
t---g- -'& -- -o
,4
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ffi. tg A6t
\.
p"'-
d'
'L-o.--a
ilRS1 C0t{PostTt0N
ftFlH stxTH
(AN0
rlrtn
L0x
stxlll
sEvtilTtf
sA&rA
OF IH€' RUIING PARTY
IHE SEVENTH Dltrrm
Nc.
II'
LOK
IN
IHE
SAEHAS
-FtRg.T'
AGg
C8trtldlt?l0tl
13.'
thc sbfc of this group declioed to-appflorima*cly th .sarle le$61 s* iu thc Fiftb Lok Sabha. As rogards the oldeCl (61 ycare aad above) group, tbc diagrem, Sevcnth Lok Sabba honlcwr
rpeakr forritsclf.
Reprorcrtrtiot of &e Strtes by Agr-Group in the First, Fifih" Sixth, lnd Seventh Lok Srbha. As rcgards tho break-up of ruliog party mc'mbers from differ* cnt statcar by agc.gtoup, in tbc four Lok Srbhas urtdcr consi-
(r), (rl), (iii), and I statcs o{rn bo groupod in three distinct categories, viz:
dcration {ree Appcndiccs
(ir,)l thc
(c) those which fotlow the overall national pattern with. 65 to 75 per cont of the seats among the 36-50 and 5l-60 age grorps; (b) thosc rdrich have shown '61 and abovc' group; and
clear prefercnce for the.
(c) thosc which have 90 per cent or more of tbeir member(36-50 and 5l-60) at ship from the middle age the cost eithcr of thc younger (25-35) orofthe older' (61 and above) age group. The states of Uttar Pradesh, Bihar" Madhya Pradesh, West
Bengal and Haryatra may be said to be falling in tbe first, category. Thc represeatation of vdiious age groups ffom thd states metrtioned abovo is shown in Tables 6(D, (t;), (ft]), (iy), and (r) below. Trble
*,
Lok sabhq
7.
First
Flfrh 3. 4,"
Rirth
6(i)-Uttrr PtlH
lr(r5.5) 2(3E.0) 23{32.4)
1004.1)
s.7} 29(41.4) 2?(38.6) 10(14.3) r|i, ?( 9.0) 27(34.6) 28(35.e) 16(20.5) 4{
CHANCING POLITICAL REPRESEI'ITATTON TN IHPIA
14':
Table
6(ii)-Bibrr
Ipk
Sr.. No,
Sabha
l. 2. 3.
First
12(21.3) 19(43.2)'10(2:.7)
3('6.E)
Fiflh
4(10.2) l8(46.2) e(23.1)
8(20.5)
Sixth
3( 6.0) 2l(42.0) 10(32"0) 10(20.0)
,.,
i0(37.1) ll(40.?) 4.' $eventh. l( i 3.7) r
;
'i 'l
.i
i;1t4.5; ''!!
.i
::
,'
Trbls 6(iii)r-=Madha FnGe.sh l.'
n=rr##f,trffi 1. 2: 3. 4.
r'
first
8(30,8)
s(1e,?)
r2\46.2)
Fifth
l(
4.5)
7(31.e)
$ixth,^
6(r 6.2)
(56.8)
Seventh.
7(20.0)
9(40.e) .a 4(10.8) ,1,.. ,', 8(22.E)
t'i]'t)"
Table 6(iv)aYur1
Sr. No.
,:.
Ink
SaMa
""*",
(.
r.s)
s(22.7)
aie.z). 7(20.0)
f,PE COMPOSITION
l5
':i Table 6(v)-Haryana
Sabha
No.
1. 2. 3.
Fifih Sixth Sbventh
Fimt
Fifth
Sixth. ix[h.
sgybpth
'""''
"'.-''
-:
.":Gy4_
25-35 36-50 5r-60 l(14.3)
:--
--
2(28.6) 3(33.3)
l(20.0)
6l
3(42.8) 4(44.4) 4(80.0)
and above
1(14.3)
t6
CHANGING POLITICAL REPRESEiOI*IiiN{
;f{ itSI,L
T*ue ?(r'-O.qFrrt Sr.
Lok tubhd
l.
Fifttr Sitsit
3.
Seventh
t.
Fifth
Alo,
'2.
Sixth 3.
Seventh
Note:
Figlrer in
25-35 2(20 0)
r(
4.0)
{s-0)
2(?o.0)
3{30.O}
4i49.2)
s(35,4)
{35"*)
l0(40.0)
l(4o.0)
41r6.0)
{a3,t)
?dJ3.e)
2(15J)
(53.8) 3(?3.1)
l(?.?)
3(23.1)
l(5.2) S(41.2) 9{4?.4) I( paronthoree
&r
J'2)
percubgcs'
Tbus it can be spen io all tbe three cases of Assam, !1jara! qnd Orisss that thc percestagc share of tbe older group (61 and &ve) haf beea co*staatly increasingfroa *t *Y Sebha t1
ttB aex*. tra the case sf ,A.ssanr it incropsed frcm 1l'l p€r ceot in &c First Lok $abha to 23'l per qent iE' thc-Second and to 56.6,per cent in the Sirth' ln tho Scwnth Lok Sabha' hosever'' out oi thc two seats for which elections cot*d be hell both went similar tecd can be seen as" to the 36-50 year age group. and regards the representatioo of this group in thc Fifth, Sixth thi Sevcnth Lok Sabhas in the casc'of Gujarat and Orissa' Here aggin, as ia the c.ase of the gfoup bf states discussed carlier' ili'c niildle a8€ grttups (36'50 and (51-60) htvc tot *rcd group' any loos.dsc to tlib expanlior-of the oldet tgc Sroups (3650) aud-(51'60) rcorr In fact, thc siddlc q$e -*uti t"* of tbe su$natiosr'io ls'#li#;rn;irudci#;
l7 tbe fortruncs of bott 'the 'youiger' (25"35) as well as the 'older' {61 aOd abQve) age groups. Some of tbe states show cent per aent representation of the former groups as seen from the Tablcs 8(t), (r'i), (rii), and (ir) below. Table 8(i)-Himachal Pradesh
Sobha 25-35 Age Group 51-60 6l and abote
*. tto'
Lok
l. 2.
Fifth Sixth
3.
75.0) l(2s.0) 2( 50.0) 2(s0.0)
.l
Seventh
3(100.0)
Table
t. 2. 3. 4.
8(il)-Delhi
First l(33.3) 2(66.6) Fifth 4(66.6) 2(33.3) Sixth 3(42.8) 4(s7.2) Seventh 2(50.0) t(25.0) I(?5.gI Teble 8(iii)-Rajastban
f,. Lok sabha -l-.sr*#stPof-n *aa;
l. First 2. Fifrh 3. Sixth
l(11.1) 7(77.7)
t(11.1)
10(76.9)
3(23.1)
2( 8.?)
ll(47.e) e(3e.1)
l{1.3),
CHANGING POLTTICAL REPRESTNTATIoN IN TNDIA.
l8
Table Sr. No.
Lok Sabha
l.
Fifth
,,.
Sixth Seventh
Note
8(lv)-Mahara$trt
-A-'s
Age
Grurp
t4(41.7) 1s(l9.4)
?(38.9)
e62.e) 7(4r.2) l(
s.e)
3(8.r) 13(35.1) l5(40.6) 6(t6'2)
Figures in prrentheses show percentages'
Tables (t, (ti), (itt) and (ir) show age'wise distribution of the ruling paiiy iegislators in the First, Fifth Sixth and Sevcnth Lok Sabhas of such states which have returned 90 per cent or more of their members from amongst the middle age groups (SO-jO aoa 5l-60). Legislative representrtion of Himachal Pradesh and Delhi for instance, is conspicuous by the absence of both the 25:45 as also the '61 and above' agp groups in the fittn. Si*tir as well as the Seventh Lok Sabhas' Delhi. however' returned one representative from ths old:st group in-the Seventh Lok Sabha
trn fact. Himachal and Delbi always had their mcmbers frorn amg{gst the two middle age groups in all thc,four Lok Sabhas under consideration, cxcept in the First Lok Sabha in the cdse of Oetni when nearly one-thiid of its mem.bershifi fuas diawn
from the 25-35 age group. Maharashtra likewise had never had anyof its members from the 25'35 age group except in the Seventh Lok Sabha. Rajasthan has also shown similar tendenqy as fat as the representa tion.of various age groups is cortcerned' In the fust Lok Sabha it had only one member from the 25'35 age groug and in the Second, none, both from the jounger as well is thi older group. In the Sixth Lok Sabha, howevet' it had two *hile members.from tire former and one from the latter group' nearly.87 per cent of its membership was drawn from the middle ug. (:e-S': and 5l-60) groups. In fact, distinct change seems to r€presentation pattern of Rajasthaq hive' taken.place.in the since the Sixtn mt Sabha. As in thE Sixth so in the Seventb
l;
AGE COMPOSITION
{-ok Sabha, the stste.r€turned no tess then 25 psr cent of its total. mernbers from amongrt the oldest group, and at least 6.25 per cent from thc youngxt lgroup.
Thc genqral pett€rn
of
the. brcak-up of the ruling party legislbtors in the four Lok Sabhas under scrutiny, in teras of age-grouos, app:ars to b3 that olr an averag:,. threc.fourths of them are drawn from t[e age groups 36-50 and 5l-60, whilc the remaining one-fourth is shared between the younger (25-35) and the older (61 and above) age groups in uorying prop )rtiong from one Lok Sabha to the other. The stiltes of Him rchal Pradesh, Rajasthan, Maharashtra anC Delhi are molt noticeable in respect of returning more than three-fourths of their members from amongst the middle-age groups. The states of Uttaf Pradesh, Madhya Pradesh and Bihar, on the other hand, account for most of the 25.35 age group m:mbers in the Lok Sabha with their respective prrcentage shrres varying between 15 to 35 per cert. As regards the representatio of the older (61 and above) age group, Assam shows pronounced bias in favour of the older group in all the Lok Sabhas excepf the Seventh. In the Sixth Lok Sabha in parricular, it returned as many as 67 per cent of its legislators from amongst this group. Gujarat, likewrse, on an average, returned more than 30 percent ofits members from the'61 and above'group, review of the age structures of the ruling party legislators in the Lok Sabha from different states thus does not allow any specific conclusions except that nearly or more of the members are drawn from the middle age groups. The fbrtuneJ of the younger and the older groups vary one state to thq other aud keep fluctuating from one Lok Sabha to the other. As general concJusion, it can however be safely stated that with the passage of years the younger (25.35) group ,is gradually yielCing place to the olJer (61 and above) group. .The fact that the share of the younger group from position of being two-and.a-half times more than that of the older group in the first Lok Sabha came down to just one-half of that of the Iatter in the Fifth and to nearly one-third in the Sixth Lok
20
CHANGING POLITICAL RIPRESENTATION IN IT\D''"
WOMEN IN LOK SABHA
Women in politics are statistical rarities, which can in one part be explained in terms of the specialisation that assigng household chorcs to the ibmale, and in the other because of tbe smalt number of'women of 'hazard* of politics, Even so, €xceptiotral ability do find their way ioto active politics, though their entfy in this neld is fairly reoent phenomenon. In India, 'evcr since the first General Elections women have taken active intoiest,in politics aod good number of them bave succeedcd
in finding their way 1o high party
omces, legislaturel
and
shows the positioa of rvomeo ministerial positions. Table members elected in all the seven Lok Sabhas so far. Tablc
sr{;.
rot, sabha
l. First 2, Second 3. Third 4. Fourtb 5. Fifrh 6. Sixth 7. Seventh
*,iti:;d :f!,X{*, 499 500 503 523 521 544 524
,;,:";:::,",
Members
22 27 34 31 22 19 28
4.4 5.4 6.7 5.9 4.2 3.4
5.3
22
CHANGING POLITICAL REPRESEN'ATTON IN INTiTA
review of Table shows tbat, on. an average, womcn members have succecded in getting only about fivc per cent of' the total number of seats in all the seven Lok Sabhis. As can be seen from Table 9, numerically as well as proportionately minimum women membcrs were returned to the Sixth Lok Sabha as compared to the previous five, and also its successor.
The representation of women in the ruling party in the Sixth Lok Sabha was the lowest. OnIl eight women legislators, of the ruling party were elected to the Sixth Lok Sabha comparcd to fifteen each in the First and the Fifth, and nineteen in the Seventh Lo&. Sabba. Table l0 gives separatc-g lhe number of women Members of rhe ruling party as well as bf the other parties and their perc€ntage representation in each of the four Lok Sabhas under scrutiny.
Table l0 .. i, Number of \[smen Members Elected in the tr'irst Fifth. Sixth and the Seventh Lok Sabhas First Lok Sabha
Number
tage
Males 479
96.00
Lok Sabha
Fifth
Lak Sabha Sixth
Seventh Lok Sabhq.
Percen- Num- Percen- Num- Percen- Num- Pereen-ber
Mge
ber
499 95.7d 525
ber 96.50 498 tage
tage
94.65
Females
of the
Ruling
Party 15 3.00 15
19
2.88
1.48
1.34 ll
2.02
3.63
Females
o[Other
than Ruting
Patty
1.00 7
Total 499 100.00 521
100.00
544 100.00
r,524 100.00
Of the total 544 seats, elections took place
on January 3-6, 1980.
t.72
for
524
.J
1VOM€N
IN LOK $ABIiA
23
As would bc seen from Table 10, the representation of the women Members from the ruling party was the lowest during thc Janata regime and the highest in the Seventh Lok Sabha' Therc were merely 1.48 per cent ruling party women legislators in tbe Sixth Lok Sabha compared to 3'00 p:r cent in the First" and 2.88 per cent in the Fifth, and 3.63 per cent in the Seventb'
Lok Lok Sabha. Another characteristic feature of the Sixth of, Sabha was that for the first time percentage representation the women Metnbers of other parties was greater than that of ruling partv.. The non-Janata parties returned -2'02 per cent womlniegisFators crbmpared to 1'4E per cent of the Janata Party, wbile in the First and the Fifth Lok Sabhas mere 1.00 per cent and 1.34 per cent non-Congress women legislatore were elected compared to 3.00 per cent and 2'88 per cetrt returncd by the Congress PartY. The Seventh Lok Sabha has by far the highest number of women l:gislators-nearly 53 per cent more than the Sixth Lok Sabh-a. As regards the increase in the percentage shdre of women Members belonging to the ruling party' their share is higher by no less than 146 per cent in the S:venth Lok Sabha is ov-er itr- predecessor. It appears that the Congress Parti more supportive of the representation of women as compared to any oiher national politicat party (sec Diagram ItI)'
;,
No speciflc reasons can be assigred for the lcwer representation of women from non-Congress parties in Lok Sabha except perhaps that fewer women are involved in the non-Congress parties. It alor appears to be continuation of the earlier trend which shows that the Congress Party which even when it was in Opposition, returned more female members than ttre ruling party as in the Sixth Lok Sabha' State-wise Distribution of the Female Members Fifth, Sixth and the Seventh Lok Sabhas
in the First'
Our examination of tbe State-wise break'up (see Appendices II(i), II(rr), It(iif) and ll(irr) of the female members returned to the four Lok Sabhas under scrutiny, facilitates the placement of different slates of the Indian Union in five broad categories, viz
I'TIANCtr}IO TIOI.ITICAL RBP*ESBNTATION
24
IN I$IDII.
RUUIG P{ftrY OTHfR
T}iAX RI'TDIC PABff
'l
T9
.,
CT
aL
a.
j"!;
J.
nFlH'glX
FtPRf S$tranoil lXg gf,gtrrlTH
LOT SABHA
0F t0,(
t4r0l'lf
lN
THF
SASHAS Dinglam Ne,
Jlt
FTRST, FtF
rl{
SlXr$
riiolreN rN LoK
2t
sArHA
(a) those which
refurn'ed femlle representativcs Sabhas
in all
the
in
thc
foltt Lok ,(b) those which returned femalc representatives in the First and. Fifth but not in tbe Sixth Lok Sabha, or both in the Sixth as well as thc Sevcnth '(c) those which refurned female reploscntatives only ic tbe Fiftb, $ixth, and Seventh Lok Sabhas .(d) those which returned female representatives only in one Lok Sabha and
(e)
those which returned female representatives onty Sixth Lok Sabha.
Uttar Pradesh is the only state in the country which has returncd-female rrcmbers'in all the four Lok $abhas undsr scrutiny. Uttar Pradesh bas always accounted for the maximum numbejr of female members returned from singie state. Of thc tatal female memblrship in thc First, Fifth' Sixth and ths
the perceritagC sharc of Uttar
Pradesh .alone was 20;0, 33.33, 37.50, and 21.05 pdr ceDt respectively
Severth Lok Sabhas,
{seeTable ll(i)], Assam, on the other hand, had invariably rcturned at le-ast one member in each Lok Sabha but failed to do so in the Sevelth [see Table 1l(fi)]' Teble
ll(i)-Uttar
of W-omen Memhers of the Ruling Party Total gumber
-.9r.
.No.
Lok Sabha
1. First 2. Fifth 3. Sixth 4. Seventh
Pradcsb
Number
of
Women Mem'
Percentage
from Uttar Pradesh
bers
15
20.00
15
33.33 37.5A
lg
2t.O5
26
CHANGINC POLITICAL REPRESENTATION tN. INDI.A,
Table ll(ii)"--Ass?m
of Women lV emSr. Lok Sabha bers of the No. Ruling Party Total number
I. First ?. Fifth 3. Sixth 4. Sevcnth
Number
of
llomen Mem- percentage
bers from Assam
15 15
6.66 6.66 12.50
19
0.00
Three states and one Union Territorv, namely Bihar, Madhya Pradesh, Tamil Nadu. and Delhi fall under the sceond. category. They had returned at least one or two members in. each of the carlier Lok Sdbhas but in the Sixth Lok Sabha not sinqle woman reoresentative was returned. [See Tablcs t2(i),..
(it), (i,1), and (ir)1.
Table l2(i)-Bihar Total
Sr.
No.
1. 2. 3. 4.
Nnmbii
Numbir
of
of Women Mem- Women Mem-
the Ruling Party
Lok Sabha bers of
First Fifth Sixth Seventh
t5 15 19
Perceitage
from Bihar
bers
I3.33i 6.66,
15.78
WOMSN IN.I"0K
2T-
SABTTA
::
Table 12(ti)-MadlYa Pradesh
Number Ntmber'of
?iotal
Women ,5r. Lok Sabha Members of the Ruling No. af
lVo-
wen Members from Madhya
kadesh
PartY
First 2. Filth
3. Sixth 4. ,sevcirth
15
6.66
15
13.33
19
Table 2(ilD-Mrdras/Tamil Nailu
of
llomen
llomen Membets
Sr. Lok Sabha Members of the from
Ruling PartY No. 15 l. First 1.5 -4. .Fifth 3. Sixtb 19 4, Seventh
Tamil
Nadu 13'33 6,66
Toble 12(iv)-Delhi Total
Sr. Lok Sabha
Number
of Wamen Mem-
bers of
the
Ruling PartY No. 15 1. First 15 2. Fifth 3. Sixth 19 4. Seventh
Nurhber of Wo- Peraentage men Members
ftom Delhi
6.66 13'33
28
CHANGINC POLIIICAL REPRI$ENTATION TN INDIA
The tables 12(i) ta l2(t1,) cleady sho* that thcse states sbich had persistently been returniog fcnale mcmbers to ,the .," carlier Lok Sabhas failcd to, returtr ovea $ilgle woman member in the Sixth Lok Sabha, In the case of Tanil Nadu and Delbi, in particular, even in the Seventh Lok Sabha no womea Member belonging to the ruling party could be elected. The trend of decline in the number of womin members had how. ever started even earlier in the case of some states like punjab,
Himachal Pradesh and Bombay/Maharashtra till the January 1980 Mid-Term Polls. In these states no woman member was elected to the Lok Sabha after thc first General Eleetioas. Maharashtra, however, succeeded in returning at least orrc woiban Meinber in the Sixth and two in th€ S€v;th Lok -ffita:;" Punjab also succeeded in returning two women Members in 'Himachal the Seventh Lok $abha. Fradesh, .however. out ar an exception in the sense that after the first Ggneral
Plections not even once a. woman Member gould be elected from this sratc. [See Tables l3(D, (ii), and (iti)].
Table l3(l)-ps5156
Sr. No.
Total Number of Lok Women Members Sabha of the Ruling
Party
t.
First
15
Fifth
I5
Nunber of Wo. Percentdge
man Members from Panjah
6.66
Sixth Seventh
l9
I0.52
.2y Tsbl+
l{ii)
--Hlmlcbal hadcsh
Wo' ,Sr. Lok Wdtnen Members man Membets No. Sabha of the Raling from Himachal Pradash PdttY Total Numbdr
l.
First
15
Fifth
15
of
Number of
Percent age
6.66
Sixth 4.
t9
Seventh
Tabl€ t3(iii)-Bombry/Mahrrashtra
Sr. Lok
.iVo. Sabha l.
First
Fifrh J,
Sixlh
4.
Seventh
Total Number lVomen
of t$e
PartY
of
Met4be$
Ruling l5 l5
Number men
of Wo' Percent'
Members
age
from Bombay
20.00 12.50
19
10.s2
In the fourth category fall thosc statcs which bave rcturned *ooan member:only once until the Seventh Lok Sabha. Karnataka, for instance, had women representation only in the" Fifth Lok Sabha viitb iis percentage share being 6.66 per cent" As against tbis, Andhra Pradesh returned 13,33 per cent of the women Membersin the Fifth.Lok Sabha, and was responsiblc' for returning no less than 15.78 per cent of the total ruling party wom€n legislators in thc Seventb Lok Sabba. [See Tabled 14(t), and la(tr).
CHANGING POLITICAL RBPRESENTATION IN INDIA
30
Tabto ,Sr.
No. Lok Sabha
lr(l)-Aadln lhdest
Total Number
of
Women.Mem-
the Rukng Party
bers of
Number men
Wo-
of
from Andhra
percentage
Pradesh
l.
First
l5
2.
Fifrh
l5
13.33
J.
Sixth
4.
Seventh
t9
15.78
Tabte ,Sr.
No.
Lok Sabha
(ii)-Mysore/Krrnaleka
Total Number of lltomen Members of the
Ruling Party
l.
First
t5
2.
Fifth
l5
Sixth 4.
Sevcnth
,.
Number.
men
of Wo- percen-
Members
from Mysorel
tage
Karnataka
6.66
19
Finally, we bave those .three stltes which had no female representation in the First the Fifth also the Seventh Lok Satrha, but returned at least member each to the Sixth Lok Sabha. The states of Haryana, Gujarai and West Bengal, each of whom individually accounted f"r fi.SO per cent total female m:mbership of the ruling pariy iq thc qir.th.Lok Sabha, fall rhis caiegrry. [See (r), (,i),
and (tit)l.
3t
1VO},IEN IN'LOK SABIIA
Tablc l5(t) -Haryana Sr.
No, Lok t.
Total Sabha
of
Number
l4lomen
Number men
of
Wo-
Mernberg
Members of the from Haryana Ruling PartY
Fifth
12.50 19
Seventb
Table
No, Sabha
15(ii)- Gujarat
Women Members Number of
Total Numbet o-f
Wotmen Members
of the .Rtling
PortY
l. 2. 3" 4.
tate
15
Sixth
Sr. Lok
Percen-
Fifth
tage
from Guiarat
l5 l5
First
Percen'
12.50
Sixth
l9
Seventh
Tabh S(iii)-West Bengal
Sr.
No, Lok Sabha
Total
of
Number
Women
lv[embers of Ruling
2. 3. 4.
l5
Fifrh
15
Sixth Scventh
An examination
men
of Wo' Percen'
Members
the from West
Party
First
Number
tdge
Bengal
12.50
l9
of the female representation in the ruling
party in the Lok Sabha thus does not indicate any positive trend. Contrary to all expectations, despite thirty years of
:??
modemisation, universal adult franchise, thc rigbt to equality of sexes, and spread of education among the female population '.of tbc country, fenoale representation among the ruling elite of the courtry, is on continuous dcciine. Co*pared both to the First and the Fifth Lok Sabhas, tbe number of female members in the Sixth Lok Sabha came down by aliriost 50 per cent. An unprecedented_ increase in the representation.of this group.by. more than 145 per cent in the Seventh Lok Sabha ovei 'iis" predecessor is welcome sign.
The behaviour pattern of different states of the Indiaa. Union, as regards returning female mcmbers to the Indian
Parliament does not, howevsr, permit even broad generalisation. Most of the states have, by'and large, retuined female memberg to the Lok Sabha, at one tim€ or tha other. But, of all of them, Uttar Pradesh and Assam are the only two ststes in the country which have had thcir female reprcsintativer among thc ruling clite of India in all the four Lok Sabhas undcr study.
CHAPTER IV
EDUCATIONAL LEVEL
Thc Constitution of India does not lay down any educational qtralifications for contesting seat to eitber llousp of the ludian Parliamcnt. But it has to be conceded that the educetional
accomplishments, \ryithout being equated with political perspica' manner in which person coa* city, have great bcaring on dutts himsclf in public office. Even allowing for the rigid Partv great cxtent wrcst$ the initiatiraE from discipline, which to truly individuat members and precludes thc possibility of frca expression of one's opionion thc n€cessity- of certain' minimum level of educational training for the legislators cannot
be uaderstimated. More importantly, educatiqn profoundly person as well as-the underaffects the behaviour pattern of standing and knowledge he brings to beat upon public affairs'
Educational tevels of the members of the Lok Sabha in the constitutional pre'scrip' Indian Parliarnent, despite absence of tion in this regard, have remained reasonatly high through the ]€ats. The co:lparative figures of educational standards :.of the Medrbers of the ruling party in the First, Fifth, Sixth and the Seventh Lok Sabhas are shown iq Table 16.
per cetrt the ruling party had done graduation and above
In all the four Lok
membcrs
of
Sabhas utrder study, at least 60
34
CHANGING POLITTCAL REPRBSENIATION tN INDIA
la)
l() tq)
st s14-a
qlrav)t vl-V
l-t h,*llR
t: t:
tri€
-rH
.ta
L/-
€.E
rl{
\e.
lFt
=ra
lLr ol
iEr Ad le
C4F
s€ ttt q):
q.)
rlt
a.t
6i
c{
S3floo.+H Xctxnrq;c. ":fYconrrd \o co
:? oi ,-i
_;
-j
FFI: \'4iE lE
.l
l*
IF
gE 2e Efi E:
.:
t:
>r
38F3 .d e.i ..i
.l .l
ct6
E€
..r
c.r
-Ia t.
ol{
,E
Vqo9\es..r\o -:(".lToai..i6l e.r!?ecnr-;ad ao c\
EIT ald
eEgh
IE
lll
E€ kx
>,o
-\
(r.l
>,
c:
.oi !:.1 rl()
{
I
!.:
(|
rrt
'tl
et
ra{
(l bo
.2o
::.
rA
<6 :>! ?,
Eg :.t
53 ;g 3.E eE
:5! >,b !.r 1'A .,'v.=O
k
l!|^
?-
3*sEx#s;€ -:c.i.d+d\oF
VOMEN.IN LOK SABT{4
35
gEisg$Es
'v
'i c'E'c >r J4 ":
€sd.;3'.E.g;fr"q sS cB
s,ig..:lei +n'+'E E.
:- "s E? a#i "uEr..A;;-E jj .d EqEE9.-*s r-.1
o.r
n'e€;€;E
*E::Ee 'Y $3s =€; ,.:
cs
,.E
3:fscQE.^-r
'-E<1;5 ''"'€ 5.! '- 3;
r-r t-'' =oJ
Ebi*E;eE E'I:F3$€d i:5!ti< =':-aJ.-
"Jcd.qq
zr
95.3*c*orF
s?: B:
ier; E: E.g':
*F i:J*;'.*€ ji;;:o:!!
h{ E9<
i- .o
'i'.:;i65 Ft.a o.5 cd oo t"'.9o
.E
k
zr
qc
Es.g !E
Ef ;E€rF!?
@t
36
crrANcrNc pouflcAI, REp*i{t}rrrtrca
tlrffglA
(Table 16). Of the remaining zl0 pcr ccot, betwcen lO to 20 pcr cont had attcndcd College or University withsut obtatnin! degrce, and nearly l0 p€r cent bad'itone. othcr rpecialircd
courses. The percentage of under-Matriculitc ligislators has remained relatively low considcring thc geDer*l lcrel of cducation in tbe country at large.
in
rrVhat is striking is tbat contrary to all cxpectations gen3fated sequel to thirty years all round progress in, thr. coustry,
tbcre has not been
of
corresponding iucrease ia tbq educational levcls of the Indian legisletors. If anything, there has only been slight decline in the eduqatiocal standbrds of' thc ruling party members especially in the Sirth Lok Sabha. For instance, the percentage of Graduatcs fell dosrn from 39.42. pcr cent in the Fifth Lok Sabha to 34.02 psr cent in the Sixth Lok Sabha; that of Postgraduates from 26.04 por cent in thc, Fifth Lok Sabba to 25.00 per cent in thc Sixth Lok Sabha; and that of Doctorates from 2.85 pcr cent to 2.77 per cetrt. From tbc Sixth to Sevcoth Lok Sabha, thcugh the p€rcentag€ share of* the Graduates increased from 34.02 to 41.2j (an all time record in tbe Lok Sabha), that of Graduatcs fell from 25 per cenl to 21,30 per cetrt, and that of Doctorates from 2,7g per cent. to 1.45 per cent. The percentage of under-Matriculates in* creased from 6.34 in rhe Fifrh to 13.54 in the Sixth Lok Ssbha, and to 18.89 in the Seventh Lok Sabha. This is indced intrigurng
may be of interest to note that of the four Lok Sabhas under examination, educational level of thc ruling party legisin the Sixth Lok Sabha. Such phcnolators was the m€non may in part be ascribed to thc cxtraordinary circumrtances at the time of the formation of Janata Party and also during tbe Sixth Lok Sabha elections.
It
the nurnber of under-Matriculates increased by more than 110 per cent in the Sixth Lok Sabha, and by nearly 40 per cent in the Seventh Lok As can be seen
from curve in Diagram IV,
their respective predecessors, with the result the percentage shares ol graduate, post-graduatc, doctorate, college educated, and university educatcd legisfatorr Sabha as compared to
a9PCAlIoNAf
r"BvEL
t# ...J*-r-
i; 'tlF[lnrlFE.
'.
ftnA0Utl€5
FO5T6RAOUATE5
IX'CIORATIS
UNIYiRSIIY
€OUIATION
PlngP5
cottE 6t
,\'
5,t -1>', €FRSt
r0
Cstrlrtoxlr ttvtls u{ ii.{
;tol
SXIft'
5A8lrA --
FrRSr FfTH sJxlx Ato lflE
SAblt AS
Diagrasl No. lY
cHANcrtic poI,trlcAt. REpnEsENTAiIoN rN rNDla
felt by ll per cent,4 per cent, ll per centand 7g per cent r€spectively in rhe Sixrh Lok Sabha. Similarly, from the Sixth lo the Seventh Lok Sabha the percentage representation of the ruling party Post Graduates and Doctorates fell by l5 per ceng and nearly 92 per cent respectively There was, however, an increase of slightly more than per cent in the.share of legislators holding professional and other miscellaneous qualificalions in the Sixth Lok Sibha, but once again it took down" hill plunge by nearly 38.0 per cent in the Seventh Lok Sabha. We shall dwell upon the factors responsible for these phenomena in the subsequent pages, but the point utorth noticing: at this stage is rhat the cducational level of the Indian parlid. mcnt took steep plunge in the Sixth Lok Sabha, and ths Sevcnth Lok Sabha saw lhe highcst percentage of under.matriculates.
Strte-nisc Brtal-up of the Ruling party Legislaiors in the First, Fifth, Sixth end lhe Serenth Lok Sabhas by Thcir
Educational Standards
In
country of ncar continental dimensions such as India rhere by virtue of diversity of cultures, languages, and historical circumstances, the different units have utt"in"d varying: degrces of_ development, it is natural to expect by and large a,
corresponding variance in the educational levels of their res* pective leadersbip. An analysis of the data relating to the educational lev,els of thc ruling party legislators returnJd from vari. ous stat€s to the four Lok Sabhas under examination, does not T::.""r_ l:r9 itsetf to any righr ctassjficarion. [See Appendices
ilt(t), III(,,), Ill(iri), ard III(ir)1. Even so, an artempt
has been
made to analyse the fiuctuating trends in the educational leveh of tbe of lhe rulir:g party by grouping the various. states in following broad categories:_
(a)
States lrhich tave consistenlly returred
more
of itt representatiles from
:0
Fer ccnt
or
amongst graduatcs;
(D) States wbicb have been relu,nirg at leasr 25 per c€!t of tbeir representatives witb post-graduate and higher qualifications;
FDUCATTOI'L\L LEVEL
39
(c) States which have 25 per cent or morc of their repre' such sentatives to the four Lok Sabhas from amongst persons uho havc attended -a colJege o!.-unive'rsity without obitaining anY degree; and (d) Such states uhich have invariably returned !a199 perceniage of their legislators from amongst unoerMatriculate/Matriculate/Higher Secondary category' and from amongst professionals and holtliis of various diplomas/cert ifiCatei in humanities and other miscellanJous subjects (as listed in the footnole of Table 16)'
The slates of Assam, Gujarat, Haryana, Madhya of their rcpre' have all invariably returned 30 per cent or more Pradesh
seiitativestothefourLokSabhaswithgraduatequalifications. the Of the total 19 graduaies belonging to the ruling party io frfin Lot< Sabhaithese four states together accounted for more irt"" ri fer cent of thcm with their respcctive shares as 4'13 Per cent,4.li per cent, 3.30 per cent and 5'?i3 per cent respectively ISee ApPendix
III
(iD].
Similarly, of the total 98 graduates of the ruling partyjn were from the Sixth Lok Sabha, 24, i.e.' nearly 25 p-'r cent per cent' these states with lheir percentage sbare being 1'02 In the 6.12 per cent, 4.08 per cint, 13'26 per cent respecdvely' ...Eeventh Lok Sabha also,of the total 142 graduates in tbe House, the combined share of these four states was lmorc "than 21 p:r cent' Representation o[ the graduate legislators. of 'the rulingparty in the four Lok Sabhas under- examinatiol is being shcwn separately for each of the four states in Tables l7 (,), (tt), (ttt). and (ir)'
Sr. 'No.
1.
4.
Table 17(i)-Assam
Lok
Sabha
rrst
Fifth
Sixth
Educational l.eYel
Gradu- Post DoctoMstric ates Gradu' rates Univer' sity Eduates Matricl caIiOn Iligher nder
5(38.4
38.4
1(50.0
50.0
r(33.3
2(r 5.s)
7.7)
l(33.3)
40
cHANcrNc pot,trrcAL
REpRBsENTATToN
IN rNDrA
Tablo 17({i)*Gujarat
Sr.
Lok
No.
Sabha Under- Gradu-
Educotional
Level
post Docto- Collegel Others Matfiil ates Grailu- rates (InivJMatric atcs sity EduHighercation --.-----.----...
Secon-
dary
1. First
2.
-:
Fifrh
5(s0.00) l(10.00) l(10.00) 2(20.00) l(10.0)
4\
3) 4. Seventh s(32.00) 14(56.00) 2( s.00) 3,
Sixth
3(2t.
Table
Sr.':Lok No. Ssbhq
s, 2(t4.
6(42.
3(21.4)
l(4.m)
l?(ill)-H*yena
Educational Level
Under- Gradu- Past Doctot.Matricl ares Gradutes ates Matricl 'I{igher
Callcge
University Education
Othets
Secondary
l. First 2. Fifrh 3. Sixth i*. $eventh
4( 57.1)
2(28.6)
4( 44.4) 5(s5.6) 5(100.0)
l(14.3)
{t
,Eo6ntrONAL; LTVEL
Tabb 1?(iv)-MadhYa Pradesh
SL
Level
Educational
Lok
No. Sabha Under Gruduates Posl Eoctor' Gradu'ates Matrlcl ates Matricl
College
Athers
Universitl
Edacation
High€.r
Secgn-
dary
l(5.0) 3(15.0) 2(ll.l) l(s.5) l( 5's)
4(20.0) 8(40.0) 2(10.0)
2(10'0)
2f Fifth
3(16.7) ?(39.0)
4(22'2'
3. Sixth
8(2r.6) 13(35.1) e(24.4)
4.
8(22.8) 1q28.6) ?(20.1) 1(2'8) e(2s.7)
l.
First
Svcnth
tQ'I\ 3( 8.1)
3(8'l)
Xote: Figures in parentheses show percentagc rcpresent'rion of the given cducational level from the concere ed statc.
It
can
from
the tablcs
abovc
that
these arc also thc
:itritec tf,hich havo i,.eturned minimum number of legirlatorn belonging to thc undc r-Metric category. Thc only exception to tkis,p-"t6tn is thg state of Madhya Pfedcsb which has invarF ably returned nearly 20 per cent of its legislators from this €at€gory. No othcr commonality in the reprcsentatioo patterf,
of various cducational levels in these four states can be dis' celncd except thlt along with 30 per ceut or more graduate bgislatore, ihat" *t"t"t also return at least l0 per ceot of their
represeritatives
*ifh ?ost'Graduate
qualifications'
In thc second category' viz., those Statcs/Union Territories which have feturned to the four Lok Sabhhs under cxemiaation, no less than 25 per ccnt of their legislators with Post€.raduate or highcr qualifications, we have Assam' Bibar' Itar*ana, Himachal Pradesh, Uttar Pradesh and Delhi' The bre4*'up oJ the ruling lparty legislators by 'tbeir .educational lcvJs ilthc four Lok-Sa-bhat it b.ing shown in Tables 18(i)' (ii) (iir), ard (r'r,) separately for each stote'
:12
.i'-
CHANGING POLTTTCAL RBPnESENTATIO!-{: M. I{*DIA.
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-14
CHANCING POLITICAL RSPRESENTATION TN INDA'
It mty be of interest to notc frorF Tables l8(i) and,(rrr) rhat the States. of Bihar and Uttar pradejh, otr arr average, ,eturn
more then 30 pcr cent of their legislatms havilg iost-CraCurnts and bigher qualifications. Being the largest- Stat€s in the country, together the two of thcm accounted for 46.26 oer 'cent, 4A.23 per cent, 51.3g and 32 pcr ccnt of the total oo.L,
of Post-Graduates in thc First, Fifth, Sixth and Seventh tok :Sabhas respectively. Similrrly, thcsc two crates account€d for 60 per gent, 50.per cent and 40 per cent of the totAl humber of doctorates in the First,, Sixth and the Seventh Lok Sabhas rcspecti\rcIy. [See Appendix III(t), (t,), (fi). and (iu)]. Howevcr, no .candidate bclonging to thc ruling party with doctofate 'qualifications was returned from eithcr of tb.r. two,tates to thc Fifth Lok Sabha. As regards Assam; Haryaoa, Himacbal, Pradesh, and Delhi, at least per cent of the total number .of legislators of the ruling party from these states have invariably been holding post-graduat€ of highef rather large numbcr Sabha Members of the ruling party in all the four Lok Sabhas uader cxrmination, claim. to have attcnded a Collegc or Uniwrsity but with'no proof 'to support this. In almost alt of thosc cases, the most commonly msigned reason for having left the without obtaining dcgrce is given as, joining political movemcnt or imprisonment as consequence theriof.
With tbc exception of just
viz., Haryana and Himachal Pradesh, large aumber of legislators of the ruling party from all the states in all thc four Lok Sabhas undcr stuily, claim to have left their studies due to one reason or the oflrcr, Maximum number of such cases arc to be found from Orisra, W.est Bengal aod Assarn, followed by Uttar pradesh and Bihar. The perccntage reprcsentation of such legislators from i:ach of thcrc states in the First, Fifth, Sixth and the Seventh 30.8 per ccnt in thc Fifth. CO p".."ni;o ii" \ing lgt.salt-r1 Sirth and 15.78 per cent in the Seventh Lof Sabh; in the case ofl Orissa; 38.1 per cent in the Fiist,23.l per ccnt in the Fifth. 3J.3 per,c€nt in thc Sixth, end 20 pcr ccnt in the Scventh Lok Sabtra in thc case of'Wcst Bengal li.2.pcr, ccfit i! the First aud 15.5 __
?DUEATTONA!
4' ,i
L!VfL
ti
rtdt ,H9s
v-;
td9R
at
a! o) (u
,VY;
,.i\oal l=..t
r.,vY
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ei.
t'i +
6'- 6'q
pgg9
::tr-
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ils &t
b& t.}
DI
t()
tr- .:y
>.
Eh' "1 rll :t cr\
l: 'iF ts lD S*
c.l
(!
bI!
v1
t" ;ii: r.- :; :i!? t(D t6 ghoa lE
'<' ,a ql
E#€E iiilad;
?999
:J
.:rl€
-G
cqq IF'og
t\
6(r.rtq-
6:qq
il {lit
I.L t^-
gRXE\ivvrloril ll\-/l
:ttt
q'a
f.'l
rli
rl
a.q
t.
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l!a l$ trlo
llll
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a,a z-. e.l-O\Y
l=. t:-:
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"s
t..-, la
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6a
l^-.
ll
ci*
46
CHANOING POLITICAL RBPRESBNTATION IN'1ITDIA
per cent in thc Fifth Lok Sabha, in the case of Assam; 15,3 per ccnt in the First, 16.?-per cent ia the Fi_fth, ls.j per cent in tbe lSixth, and, 15.7 pcr cent io the Seventh Lok Sabba, in the case of Uttar Pradesh and ll.6 per cent in the First, 15.2 per rent in the Fifih, 13.7 per cent in the Sixth and lB.5 per cert in thE Seventh Lok Sabha in the case of Bihar. The break-up of the ruiing party legislators falliog in this category frorn the .states of Orissa and West Bengal can be seen from Tabtes t9(t) and (tr). (Fqr Assam, Bihar and Uttar pradesh, see Tablec
1(t),
18(,) and
l9(i/i) respecrively).
The three states, viz, Orissa, West Bengal, and Asiam constituting the Eastern Region of the country hav; among
themselves highest p:rcentage of such Lok Sabha members who fleft their College/University studies unfinished due to one reason or the other and joined politics. In the abtence ofadequate oate,
tltough.no conclusions can.be. drawn as to the greater degrec of politicisation/active participation politics of the student. corumunity at the College/University stage, it has dennitely 'pointed.to an area which needs an inelepth examination. thorough investigation ofthe question as to why the incidence of College/University dropours entering into active politics is extremely high in Eastern India as compared to the rest of thri:l €o_untry, may unearth important information about the pattcrn of students' involvement in politics in various parts of the country. graphical representation of College/University .drop outs of the ruiing pirrty from the Eastern india states and from the rest of the country in ihe First, Fifth, Sixth and the Seventh Lok Sabhas is shown in Diagram V.
It is interesting to note from Diagram that the representation of the College/University drop-outs from the Easrern States slumped considerably in the Seventh Lok Sabha. ln addition to the College/University drop_out category, quite large numb-.r of legislatore in all the fr_rur Lok Sabhas under scrutiny have been found. to be under-Matriculatrsl Mltriculates or with professional and other. miscellaneous qualificdrions ofthc older Indian systvn of erjucation. Together
.siffJct rroNAL
.-.41
rtVrL
SASI
INilA AtrN$T
RTST
OF INOTA A'EFA6E
!?
z,
'FlRsi
''
DRoP-ours rB
croLLE'GE !*]YE-l:tT,:pER(tNT RtPRqseNTATtoN 0F 'ANO SEVENTh tOK SASHAS TH6 SIXTh FIFTH, THE TtRST. Assqm orissa cnd of stotes the €49i. lndta repreEents NoTt \.le si Bengol. Xvlll obtt* ond xvtt xvl tobles fron tl- AvefoqQs vorke
Diagraqr No.
.$
CHAI\GING PoLITICAL REPRBiINTATTON rU Il{pIA
lEst{
sss
I
lia la) l"t
lo
lEs
lS'S
l< +s: t!.:
TlFss ctlu <.4 -l G'
.:i
ae.c NdAE xi6,xn<
?qcq -;.{
=g** ?
-:lFo,5
l;'E
a\
lEsE
=F..rl
ts$$
?c
V;6,
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GI
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lFrt 'Ytl
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"F
l*o I$
9€'aa E;Fi :(f c.l tt YiiXr
c-'rqqc
t* 'rs fi
;(6Y+,
*t
r--o'oF gr?y
"!* -:d
rj*
a{
cl e{tr+.1
;:. lfr
;: l{
A
'-: ri Fi
ral
aJ
al,
TDUCATIONAL LEVEL
49
o{ol ^^^l 1,.;oiFl
s.9
;BI
H*-
\s s*
.o
Fr
i{n
-l
c{ c.t
{€
,Rq\ lg9s, !s-d
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0.)
tu
IL, Q' '(A
-i .i
..i
l)
z.
50
CHANGING POLITICAL REPRESENTATTOI.I IN, I}IDII,
these two categories of
approximately
lO
the Lok Sabha Members
account for per cent to 20 pcr cent of ihe total number
of legislators. Sueh Members are rcturned from almost all states but Rajasthan, Maharashtra, Uttar Pradesh, Bihar and Madhya pradcsh seem to be ahead of all thc rcst as lar as
the First, Fiftb, Sixth and the Seventh Lok Sabhas are concerned. Represcntation of these categories of legislators from Rajastban a,nd Maharashtra is shown in Tables 20 (i) and (ii) below. (For Mddhya Pradesh, Bihar and Uttar Pradesh, see Tables 17 (iv), 18 (l) and l8 (iii) respectively). We had clarified at the outsct that though scholastic attainments cannot necessarily be eguated with political maturity and competence, certain minimum level' of educational qualification is nevertheless essential for Lok Sabha Membe rs so as to grasp the complexities of parliamentary business. It is admittedly difficult proposition to define this 'minimum level of €ducational qualification' and lay down the lowest desirable level of education for the Membcrs of the Lok Sabba. Oo purely simple coirsiiJeration, if rve assume the first degree examination, i.e., graduolion as the minimum educational levil required of the Membeis of the Lower Llbuse of Indian Patliament so
as to give them supposedly better understanding of the parliameritafy business, then we find that nearly 30 to 40 per cent of tlib Mimbers of the Lok Sabha do not ful6l this condition. Tbe followihg tablb shows separately the numbers and percentago representation of the Graduate and higher degree qualificatibrls on the and those with lower qualifications on'thd other, in all thc four Lok Sabhas under cxamination.
Table'2l' thus shows that over the lait 30 years since the first Geoeral Elections in the country, the increase in thc educationdl level of the Lok Sabha has bcen only marginal. On the contrary, it actq_ally feE down by nearly 5.5 per cent from the ifth to the Sixth Lok Sabha and,did lrot close the gap cven,in ihc"Seventh. As compared to the First Lok Sabba the cducational level of the ruling party Members in the Sixth Lok Sabha was highcr by'less than pei.ccnti Even in the
5t
ADUCATIONAL LEVEI.
Table 21 Graduate and Non-Grailuate Members itr the Sixth ar*l the Seventh Lok Sabhas
Sr,
No.
Lok
Total Number of ruling
Sabha
party
Members
nist.
Fifth,
Member with NonGraduate and GraduHigher Quali ate fications* Mem-
bers*t
First
327
Fifth J,
4.
96(59.9)
13r(40.1)
Jlf
212(67.3)
103(32.7,
Sixh
288
178(61.8)
l0(38.2)
Seventh
344
222(64.5)
r22t3s.5,
Note
Figures in parentheses show percentages,
Includes Graduates, Post-Graduates and Doctor-
**
ates.
Includesunder-Matriculates, Matriculates, College and University educated, professionals, and all others holding various diplomas, certificates and
degrees etc.
in languages and humanities etc.
Seventh Lok Sabha which bas the second best representatioo of the Graduate category, the increase over the First Lok Sabha was less than 4.5 per cent.
From this discussion
ol
the education l:velsof the ruling
party members in the Lok Sabha, we can tentatively conclude {hat there bas been no appreciable increase in the cducational levels ofthe national legislators in India. Even the partern of ?break-up of the ruling party legislators by various educational Jcvel categories has to great extent remained unchanged which ,is approximatcly 35 per cent Graduates; 25 pcr ceot post-Graduates; per ccnt Doctorates; l0 to 15 per cent College/Unrwcrisity cducatcd; atrd nearly 20 per cent under.Matriculatec
CHANGINC PoLITICAL REPRESENTATION tN INDIAI
52
and with miscellaneous othcr qualifications. Considering tle various facts however, the relative stability of university level of €ducation must be considered no small achievement.
the individual states, no grave differences havebeen found in the patterns of representation from one state to the other. By and large, all the states bave been found with pattern of representation of national leadership by their educational qualifications, similar to the one obtainable at the national level. However, the three Eastern States of Assam, brissa and West Bengal havc been found to be returning relatively too large proportiol of their Lok Sabha Members As regards
from amongst such persons who leave their College/University studies unfinished and join active politics. An answer to this thorough phenomenon is beyond tbe scope of this study, but investigation of the problem so as to find suitable explanations' asto wby such practice is confined largely to the Eastera States may reveal important information.
CHAPTER
OCCUPATIONAL STATUS
Occupational status of the legislators, while one of the 'most important consituents in determing the socio-economic .character of legislative assembly, is at the same time source of special diffculty, especially in the Indian circumstanc*. In India, it is not uncommon for person to be engaged in
different strges of his life, or to be -engaged in several of them even at the same time. Lok journalist, and lawyer, social Sabha Member may be worker, while at the same time.claiming to be land-owner
sarious occqpations
,aud
at
holder of several busincss interests.
In the absen:e of accurate, complete and reliable data, all discussion about the occupational background of the ruling rparty legislators is reduced at best to intelligant guess work. However, considering the fact that the economic and political .development of country rarely fails to reflect itself in the occu.pational composition of its ruling elite,* we have neverthelese "{oade an attempt to ass-ss the emerging pattern of occuptional detailed discussicn of the changing occcupational complexion of the Inclian legislators ever since the advent of parliamentary elections in India, see W.H. Morris-JonEs, ParliamEnt
*For
in
India, Westport, Connecticut, Grejnwood Press,
pp. 114-128.
1976
54
CIIANCING POLITICAL REPRESETITATToN IN INDIA
character of thc ruling clite in India on the basis of tbe information furnished by the Members to the Lok Sabha Secretariat. The data on tbe occupational composition of the ruling party in thc Indian Parliament does not lend itself to any srricr. classification, due largcly to the variety and multiplicity of vocations said to be followed by the politcal rlire in India. In the following pagcs, howcvcr, an attempt is being made to analyse. the social and occupationgl .base of the Indian legisltors by grouping them under ten broad categories as shown inTable 22.
It is clear from Table 27 that on an average, 50 60 ccnt of the ruling party legislators the Lok Sabha arc Lawyers and Agriculturists. If ryc add to this those legislators
claiming to be "social and pclitical workers", then together the three groups account for ncarly 80 per cent of the total ruling party lcgislators in each of the Lok Sabhas under study. The tr0ost irqportqnt developmcnt is that the pgrcentage of Lawyer members has been decrcasing while that of Agriculturirts is gradually incrcasing, phenomenon which we will commeut in detail lircr. .upon
There wasa sudden increasc of more than 13 per cent in thc members'of Soiial and Political Vy'oikers in the Sixth Lok Sabha as comparcd to the Fifth Lok Sabha. It rray bc of iaterest to note that as far as this category is concerned, carlier trend bad been towards decline in their numbers dg ehown in Table 22.In thc Seventb Lok Sabha the pc{crntage sbare of tbis once again fgll by nearly 28 per cent as compared to the Sixth Lok Sabha.
The predominance of lawyer legislators in tbe earlier Lok Sabhas can be explained in terms the bistorical legacy of the British Raj in India when largely Westeri educated Barristersdrawn mainly from powerful soeial and cconomic classes formed the core of the lcadcrship io tbe Indian National Congress,. which in course of time also becamc the vanguar{ of the Iidian freedom struggle. It was therelore perhaps natural that larger percentag€ of ruling elite came from amongst tbe legal prqfessioo. The gradual dccline in their numbers is an interesting phcnomenon and could perhaps be cxplaincd in
55
OCC$PATIONAL S1ATUS
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56
CIIANGTNG POI,ITICAL REPRBSENTATION
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I.NIXA
OC'CUPATTONAL
STATUS
57
that the political base of tbis group has sbrunk as against some of thc other groups especially the agriculturists' But' -what is mos! surprising is that except for the agriculturists the percentage share of representatives of almost all other classes
has declined during these thirty years.
Put differently, the agriculturists turn out to bc the only
class which has gained substantially at the expense of all other .categories in the recent Lok Sabhas and especially thc Seventh Lok Sabha when its representation rcached an all time high 'of 40,11 per cent. The only exceptions to this have been the two categorie-s of Social and Political Workers, and Teachers which -had also been gradually losing ground, but sornehow managed to register an upward push in the Sixth Lok Sabha'
Sabha not only the agriculturists succeeded in consolidating their position' even the lawyers slight in"t.uit. The percentage share-.of Social registered .and Political Workers category declined by nearly 22 per cent but it was still sufrciently higher than in the First and tbe Fifth Lok Sabhas. As compared to the Sixth Lok Sabha' the Educationists and Teachers class has come out to be highest loser in the Seventh Lok Sabha in so far as its per€entage share fell from 8.30 per cent in the former to mete cent in the latter, (See Diagram VI)' 3.77
In the Seveoth
Lok
It is thus clear from Diagram VI that the Agriculturist
.class has consolidated its position in the Lok Sabha after every 'successive election. On the other hand, the percentage shares
of representation of all other categories have been declining from one Lok Sabba to the other. The only exceptions to this have been Social and Political Workers, and Educationists and Teachers. Heaviest losers in this process of change of .occupational composition of the Lok Sabha have been the lawyers, followed by Journalists and Wr iters, Traders and Industrialists, Military and Civil Setvants, etc.
1he profound significance ofthese
clear indication that the processes unleashed through free and democratic
'be overlooked. The present trend
political
developments cen hardly
is
58
CHANGING POLITICAL R.B*RF$ENTATION "IN INDIA
r!fttuttllils
rrflY|$
,ouffI' rcltltr .-+ s00r $..{.+ cldtsosti | rfAtiflt +-!+.. !utnl![? utrttti 'L
B$tuUrt
3aultt.i alr
tr|f6l{|t af t€ eurtlai Af,ry
sl8|ras
Dhgran YI
lli€ trtgt rFth, l'rni
*.
OCCUP.{TIONAL STATUS
59
parliameutary clections, have started to bring about major transfer of political power form the westernised and urban political elite ,to the rural classes. This pbenomenon wbich for thc first time camc into sharper focus during the Sixth and the Seventh Lok Sabhas may have major implications for the political and cponomic development of thc country. State-wise Break-up of the Ruliug Party Leglslators in the First, Fifih, Sixtb and tle Scrcnth Lok Sabbe by Thelr Qecupations.
The pattern of represeotation of various occuptional cetegories from the different states of the Indian Ulion in the four Lok Sabbas under scrutiny does not show any oarked variations. frpm thp overall natiooal model as discussed above' [See Appendix lV(i), (tD, (iii) and (iv)1. With few exceptions, even the ffuctuatiotrs inthc percentage share ofa cert&in occupational category from particular state, from one Lok Sabha to the other, have bcen largely on the same lines as at thc national. level. For instaoce, the representation of agriculturists from Hicrachal Pradesh fell by nearly i5 per cent from the First to the Fifth Lok Sabha, while during the saore period there was actually,an incregse of morc than 139 per cent in the rirare of agriculturi$!g-at the national level. Similarly, from tbe Fifth tp the Sixth Lok Sabha, the tepresentation of the sam€ category from Assam increascd by approximately 14 per cent, wbilc' there was a decling of nearly per cent at the nationql level. Incompatibilitics in thc trends of representation, such as above, have been.found to be not so uncommon, both as between individual states as well as between the states and the national Dattern. But as stated earlier, most of the states of thc Indian Union have, by and large, the same occu ationalcomposition of th-'ir r:spective representations to the Lok detailed State-wisc Sabhas as the aggregate national pattern. account of the percentage share of various occupational categories from each of the states in the four ok Sabhas undcr in the following pagcs' examination is however being
Thethrcc occupational categories, namely, Agriculturists' Lawyers, and Social and Political Workers, havc by fat,"
60
CHANGING PoLITICAL REPRESENTAIToN IN INDIA
invariably been respoosible for more than 75 per cent of the total membership of th€ ruling party in the lower house of the Indian Parliament. For the sake of convenience, therefore, we have grouped the various states around these three occupational categories in the main, so as to facilitate analysis. Thc
states have been clustered around the tbree vocations according
to the following criteria:
(a)
States from which 25 per ccnt or more Lok Sabha Mcmbcrs have invariably been agricultrists;
(r)
from which at least 20 per cent Lok Sabba Mcmbers havc been lawyers; and States
(c) Such states which have returned per cent or morc of their legislators from amongst. social and political workers.
The states of Haryana, Bihar, Orissa Madhya
pradesh,
and llimacbal Pradesh fall in the first category. AII these states lave invariably returned to each of the four Lok Sabhas under scrutiny, no less tban 25 per cent of their Members from amongst the agriculturist class. The occupational composi-
tion of Lok Sabha members from each of these states is being given in Tables 23(i), (rr), (ttt), (ir), and (r) respectivety.
It
can be seen from tables 23 (i) to 23 (y) that all these states have been returning 25 per cent or more of tbeir represen-
tatives from amongst the agriculturist class. However, there .are hardly any other parallels that can be drawn between the patterns of representation from tbese five states. In the case of Haryana and Bihar for instance, we find that from the Fifth to the Sixth Lok Sabha, the percentage share of agriculturists actually came down, remained constant in the case of Himachal Pradesh, while rcgistered an upward push as far as Orissa and Madhya Pradesh are concerned. It is significant to note that the percentage share of agriculturists from the Fifth to the Sixth Lok Sabha came down by morc than 37 per cent in the case of percentage terms. this state is still ahead of Haryana. Though .all others'js returning highcst percentage of agriculturists to the
6l
OCCUPATIONAL STAIUS
23(i)-Hart anr
Table .Sr
1',' t\ o.
Number of Members in the
First Firth
Uccuoatnnal Lategortes
Lok Lok
Sixth Lok
Seventh
Lok
Sabha Sabha Sabha
l.
Lawyers
4.
Workers Educationists and
2. 3.
5.
7. 8. 9. 10.
l(14.3)
Sabha
2(40.0) 3(60.0)
3(33.3)
s(71.4) 4(44.4t 1(14.3) 1(11.1)
Agriculturists Social and Political Teachers.
Journalists and Writers. Traders and Indusrial ists.
Doctors, Engineers
and Scien tists. Trade Unionists.
rfi I l\
rlitary and Civil
Services.
thers.
Table 23(ii)-Bihar Sr, No.
uccupatrcnat Lategoty
Nunber
rrrst
Lok
of
embers in the
riftn sixtn- Seventi Lok Lok Lok
Sabha Sqbha Sabha
t.
4.
6.
7. 8. 9.
10.
l(25.U) Lawyers Agrioulturists 15(34. l) Social and Political 7(15.9) Workers. 2( 4.5) Educationists and
Teachers.
Journalists and Writers 5(11.4) Traders and Industria- l( 2.3) lists.
Doctors. Engineers Scientists
Trade
and
Unionists
2( 4.5)
5.1)
7\r3.7)
3(tl.r)
4( 7.8)
2( 1.4\
22(43.3) 1s(s5.6).
2o(s 1.3
4(10.3)
2( 5.r) 1( l.e) 2( 5.1)
l( 2.3) l(
Military & Civil Services othefs.
2(
Sabha
1( 3.7) 1(3.7)
2.6)
1( l.e)
l(
1.e)
62
CHANGING POLITTCAL NEPRE"ISNTATION IN INDIA
Table 23(iii)-Orissa
ff',.
ai3;ils*:;ry#; Lok Lok tot, 1ii
occupational Category
Sabha
l. 2.
4.
Lawyers.
2(18.1) 4(36.5)
AgriculturiSts Social and Political Workers Educationists and Teachers.
5. 6. 7.
Journalists and Writers. Traders and Industrialists
8. 9.
Trade Unionists Military and Civil
10,
,Sr.
No.
Sabha Sabha Sabhq
1( 6.7) 2(11.r, 4(30.6) 5(33.3) 4(22.2' r( 7.7) 4(26.6) 7{3e.t}
2( 5.5)
l(
e.l)
r(
e.r)
l( 9.1)
2(ts.s) 2(t3,3) l(5.s) 3(23.0)
l(
6.7)
2(n.t\
l(
6.7)
l(
Doctors, Engineers and Scientists
Services
2(18.1) t(7.7)
Otbers.
occupationat catesory
i{#!t#f*!#" Lok Lok
Sabha Sabha
in
Lok
Sabha
Lawyers
4.
Social and Politicrl Workcrs. Educatiouists and
6.
Journalists and Writers Traders and Industri-
t( 3.7) 2( 9.s) 3(l r.l) 4ile.0) t(
7.
Doctors, Engineers and
l( 3.7) l( 4.S) l( 2.8)
8.
Trade Unionists.
9.
Agriculturists
Teachers,
;clcntlsts.
ilitary and Civil
-Scrvices
the
Seventh
l.
',.
5.s)
8{2e.7) 5(23.8) l0(27.s) 7(2s.9, 7(33. r) l4(3s.s) 5(18.5) l( 4.s) 9{25.0)
Lok
Sabha
7Qu.A, t5(42.e) 7(20.0)
2( 7.4)
l(
4.8),
2(5.'1>
2.8) 4(l1.4)
63
OGCUPATIONAL STATUS
Table 23(v)-Flimacbal Prailesh
Sr,
Occupational
No. CategorY
l. 2. 3. .4.
J. 6. 7. 8. 9. 10.
Sabha Sabha 1(25:0)
Lawyers
Agricult urists (33.3) Social
and
1(2s.0)
Sabha
1(25.0)
l(2s.0)
Lak
r(33.3) r(33.3)
l(25.0)
2(66.6)
Political Workers' Educationists and Teachers
Seventh
l(33.3)
1(25.0)
Journalists and Writers
Traders and Industrialists Doctors, Engi-
neers and Scientists
Trade Unionists
Military and Civil and Services
rtzsrl
(25.0)
Others
Note: Figures in parentheses show pacentage representation of given occupational category from the glven state. Lok Sabha, yet this abrupt fall in their numbers in the 1977 elec' tions points to soniething akin to reversal ofthe tr6nd noticed at thc natiooal level. Sirnilarly, from the Sixth to the Seventh .t-ok Sabha the percentage share of this cartegory fell by nearly 60 per cent in tbe cdse of Ofissa. While rio firm conclusions can be drawn just on this basis, rapid and 5ll round development of thdse states during thu part fe]fi yeirs $e€ds to have played its part in thi!. Thus, wc find that the Stat€s rhich have been singled out as' the states rcsponsible for returning higbest pcrdbnt'ages of' agrF cullurists id thc Lok Sabha do not ho.wever indicate any cleilr
64
CHANGING POLITIGAL REPNESENTAITON IN INDTA
continuity of the trend. The case of Haryana and Orissa in particrrlar, is unique from two points of view. One, that as againsi tbe overall national trend, these arc the only states where the percantage share of the agriculturists actually camc down; and lwo that rapid ind ustrialisation and overall progress in the intervening period between the Fifch and the Sixth Lok Sabhas. should have so sharply reflected the transfer of power from the predominantly rural and agriculturist classes to other classes.
In the second category,
e, those states
from which at
least 20 per cent Members have been Lawyers in all the four Lok Sabhas under examination. we have the states of Rajasthan, Maharashtra, Madhya Pradesh, and Himachal Pradesh.
The break-up
of the ruling party legislators
from the legal
profession in the four Lok Sabhas from each of these states is
being
shown
in
'lable 24 (t) and (ti). [For Madhya Pradesh
and Himachal Pradesh,
see Tables 23 (tv) and(v)].
Table 24(i)-Rajasthan
Sr,
Number of Members in the Occupational Category First Lok Fifth Lok Sixth Lok Sevenrh LoE-
Sabha Sabha l. Lawyers 5(62.5) 5(38.4) 8(33.3) 8(33.3) 5(38.4) 2, Agricultuists Sabha
3.
4. 5. 6. 7,
Social
and l(12.5) l(
Political and
Workers. Educationists
and Teacheis ou
3(
r2.5)
3(r 2.5)
r(
rnalist
and Writers
Traders
and
neers
Scientists
Industrialists Doctors, Engi-
2(25.0) 2(15.5)
8. Trade Unionists 9. .Military and 10.
7.7)
Civil
Services
Othcrs
7(43.8) 6(37.5)
2(
6.2)
8.4)
2(r2.s)
b5
OCCUPATId'IAL SiA;NJS
Table 24(ii)-Mrharashtra
Sr. Occapational Nntnber af Members tn lhe No. €ategory fiitfrE-itnn 6n sixtn n*-sivui;i Sabha
l.
'Lawyers
.,
Agriculturists
3.
Social and
Political workers
4.
6.
l2(30.0)
14(35.0)
1(
Journallsts and writers Trbders and
Industrialists
2.5)
9.
Military and Civil Services
10.
4(23.6)
(29.?)
3(
7(re.0) 8.1)
1( 2.5)
3(
8.1)
3( 7.5)
r(
2.7)
Engineers and Scientists
Trade Unionists
rr(29.7)
3(
Doctors.
8.
7(41.2)
5(12.t 3(r7.6)
Educationists and Teachers
Sabha
LE
17.6)
1( 2.7'
1( 2.s)
Others
Out ofthe four states falling in this category, tie case of Rajasthan is most typical of the overall declirging hold of the legal profession on politics. It is the only state in which the percentage sbare of representation of the Lawyers has been continuously declining from one Lok Sabha to the otter it
fell from 62.5 per cent in the First to 38.5 in the Fifrh andto 33.3 per cent in the Sixth Lok Sabha. Ih the Seventh Lok Sabha, however, its share registered slight increa,se so as to bccome 43.75 per cent. In thc case of Mdliarashira and Madhya Pradesh also the percentage share.of Lawyers in_ creased in the Sixth Lok Sabha as compared ts the Fifih oirlv to take d-ownward plunge in the Seventh t-ot Siltd in,it Odtl tbe cases. In thc casc of the latter, it had however, fallan down
CHANCING POLITICAL RBPRESENTATION IN INDIA
66
from the First to the Fifth Lok Sabha. Tht statc of Himachal Pradesh also falls in tbc sbare of this category except in the Scventh Lok Sabha in nhich it increased by nearly 33 per cent over its predecessor. It may be'mentioned tbat despite the generally. dwindling position of the legal profession in the Indian Parliament, cven slight increass of per cent from the Sixtb' to the Seventh Lok Sabha in the case of this category is highly surprising.
Finally, in the last of the three categories mentioned abore, we have Delhi, Gujarat, Uttar Pradesh, West Bengal, Assam, tsihar and Maharashtra. All of these have been found to return
!'
at least per cent of lheir representatives to the Lok Sabha from amongst Social and Political Workers. The State'wise breakup of this category in each of the four Lok Sabhas-First, Fifth' Sixth and Seventh-is shown in Tables 25(r), (tt. (t,t)' (iv) and (v). (For Bihar and Maharashtra, see Tables 23(ii) and 24(ii) respectiv€lY).
Table 25(i)-Delbi
,Sr.
OccuPational
No.
CategorY
l.
Lawyers
2.
ri* to* ffiTroTSixth Lok Seventh Lok Sabha Sabha Sabha Sabha
5, '6. "7
'8.
9.
10.
r(25.0)
l(20.0) 14.3)
Agriculturists Social and
Political
4.
Number of Members in the
Workers
2(50.0)
Educationists and Teachers Journalists and Writers (25.0) Traders and
Industrialists l(25.0) Doctors,
Engineers and Scientists.
Trade Unionists
Military and Civil Servtccs Others
1(20.0) 2(28.6'
1(25.0)
2(28.6)
1(20.0)
r(14.3)
2(10.0) r(14,3)
2(50.0)
FT
Sr.
Members in the
Oceupational
No.
Category
1.
Lawyers
3(30.0) 2(r+3)
2,
Agriculturists
3(30.0)
1( 7.r)
3.
Social and
2(29.0)
7(s0.2)
Political
'l.l .4.
:5.
orkers
Educationists and Teachers
-,-
1(
7.1)
l(
7.r)
1(
7.1)
r(
7.D
Journalists and
Writers
Traders and
Industrialists -:-
Doctors, Enginecrs and Scientists
"e
Trade Unionists
9. Military and Civil Services
.{0.
Others
2(20.0)
-:-
'Sr. No.
Occaptionat Nu4bcr ol[_Agl\yjZt\S
Caesory VistfrF-FifiifrF-Sixt|-Lo* VistfrF-FifiifrF-Sixt|-Lo* seveniFrotl Sabha Sdbha Sabha Sabha
l. Lawyeis
3l(46.4)
2.
Agiiculturists'9(13.4)
3.
Social and
Political
workeis 4,
9(13.4)
Educationists and Tcachers 3( 4.5)
5.
Journalists
6.
Traders and
7.
Doctors, Engi-
andWriters. 1$4.4)
l2(18.3) r6(r9.0)
32(18.7) 37(44.0) 24(47.0)
8(1r.8) 6(
Scientists.
E.
Trade Unionists
9.
Military and Civil Services.
r5(17.9)
e.r)
7( 8.3)
I(
t( t.5)
l(
l0(r9.7),
3(
5.e),
2( 3.e>
6.1)
rndustrialists.
neers and
8(1s.7)
4( 4.8)
4( 4.8)
1.5)
i0. others .-". ft r.sl t( 1.5) l( 1.2)
4(
-oq€. qPArro,li^p,
Tilrys
5r.
No.
l.
Lawyers
6(24.0) 4(3.0.8) 2(14.3)
2(40.0)
:'
r'
3(23.0) 3(2t.5)
Agriculturists Social and
Political Workcrs
3{r2.0)
2(rs.4)
5(35.7)
.4. Educationists and Teachers
5-(20.0)
3{23.1)
414.3)
5.
Journalists and Writers
Traders and Industrialists
8.0)
2(
8.0)
Doctors, Engineers and
scientists
:8.
Trade Unionists
4( 16.0)
r(20.o)
fr
etioN-r* rwoil
CIIANGING POLTTICAL
rtdro'2$("FAsren'Members in. Sabha
1.-"'Lawyers 6(54.5) 2. Agriculturists l( 9.1) 3.
5.
2(15.4) l(33.3)
Social and
Political
Workers 4.
6(46.1)
l( 9.1)
Educatibnists'
and
9.1) l(
7.7)
t( 9.1) -l(
7.7')
Teachcrs. l(
Journalists and Writers
6.
Traders and
?.
Doctors, Engi-
8.
Tradc Unionists
9.
Military and Civil Scrvices
2(15.4)
Industrialists -1( 9.1)
l(7.7)
l(33'3)
l(50.0)
and Scientists
necr_s
10. large pcrccntage
of ruling party lpgislatqrs in the Lok
social and 'political wofk a$' thcir.solc.occupction prior to oontcstigg Parliaoentary elections., An analisis of tbc tkcupational comlosltion of the ruliog party' '*fftte-four Lot'Srbtas undcrtcratiny rcvcels that almost 8ll' Sabha have bcen found
to dcclarc
7r.
dCCUPATIONAI STATUS
tbe states invariably return part of their Lok Sabha represen-
tatives from amongst this category witb Pradesh and Wcst Bcngal in the lead.
It may
Delhi, Gujarat, uttat
of
interest that the percentagc of sucb m:mbers in the Sixth Lok Sabha increased significantly as compared to the Fifth Lok Sabha. Thg percentage increase in the number of social and political workers in the Sixth Lok Sabha over the Fifth Lok Sabha was neady 421 per'cent in the case Madhya Pradesh ;. more than 271 per cent in the case of Orissa 150 per cent it.the case of Gujarat and 130 per cent each from West Bengal and Assam. The representation ofthis category, however, fell by more than 2E per cent from the Sixth to the Seventh Lok Sabha. Table 26 shows the number of so:ial and political workers rcturned from each of the states ofl the Indian Union in thc Fifrh, Sixth and th6 seventh Lok Sabha, and percentage increase/decreasc in the one ov:r its predecessor. be
review
Lok
of Table 26 shows that from the Sixth to
the Social and
Saba, the perccntagc representation of Political Workers fell in atl the States but th ree-N(aharashtra, Orissa, and Uttar Pradesh. West Bengal, Bihar, Gujarat, and Pradesh came out to be the heaviest losers in this respect. Seventh
It is significant that in the Sixth Lok Sabha the members with social and political background, with the exception.oi Haryana, tremendously increased from all lhe States listed above. tborougtr investigation of this rather unknown feature of the occirpational composition of thc ruling party in
tbe Sixth Lok Sabha may reveal intercsting information about the socio-cconomic background of the various .censtituents of the Janata Party which had heretofore always occupied' the oppositiotr benches in .thc .Parliament. Thc extent of flrrctuation in the perccntagc reprcsentation of Social and Political Workers in the Fifth, Sixth and the Seventh Lok Sabba is being shown sep3ratfly for cacb of thc twelve statcs listed in Table 26 and
in Diagram VIl.
41
O[IAt{GTTire POLITICAL REPRSSqNTATIOII IN INDIA
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cHANcING polrrrcAL
74
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(rcCUPATIONAL
,15
STATUS
of
sociaF
Diagram VII clearly shows that tbe representation Lok Sabha and poiitical workers was much higher in tbe Sixth to the Fifth, but in the Sevcoth Lok Sabha oncq as in thc Fifth "o.p"t.a levct "r lowcr even or same to the down cate again refot S.Uhu. It also shows that though l\{adhya Pradesh per cent io gistered an unprecedented increase of more than 400 Sabha. iutu.nlng Social and Political Workers to the Sixth Lok to thc Fifth; ordinarily the states of Gujarat' for "...*p""*a West Bcngal, Assam, Bitrar atrd Orissa, ctc' are responsible thc Lok returning highest percentage of their representatives to Northern Sabha from this category' On the other hand' extreme 'Rajasthan and Uttar states of Himechal Pradesh' llaryana;
of.
Pradesh, etc. have bcen ,lound toieturn lowest percentages $ocial and Political Workers to thc Lok Sabha' It is significant to not€ that Himachal Pradcsh' Assam, Haryana and Gujarat did not have cven single Member from amongst this category
in tne Seventh Lok Sabha.
From thc
resbarch
point of view
it
may be of immensa
qnestions: academic intlrcst to investigate the following'tno
(a) factots rcsponsiblc for giving to the soc-ial and politi-' cal workeis highest representation in the Sixth Lok jsabha, is anY tok Sabha bY far; and and (b) ieasons as tb why cxtremc --Northern Westcrn.states of Haryana, Himachal Pradesh' UttarPradcsh, Rajasthan' and lr'iaharashlrareturn relativcl|lower peicentagei trf their represcntatives froh amongsf, this categorY.
CHAP,TE& VI
More than 50 per cent of thc ruling party legislators cven ia thc First Lok Sabha had previous legislative experiencc of tbo Central or Statc lcgislature. Of thc total 349 ruling pany members in tbc First Lok Sabba, as rrany as as 28.65 per
't7
Trbte=2? Dfstrlbbtlon of &e members of the Ruli4 Pgrty in the First' Fiftb, gixth, snd g€v€ntb Lok Sabhae by their Past Legislativc Experience.
Lok
Legislative BodY
Sabha
Sablu
100 28.65
r8r
52.47
78
22.61
No.
Central Legis-
latures. **
Statc Legis-
latures
77
22.07
No Legislaiive Experience. 172 49,28 Total
**
Fifth Lok
Seventh Sabha
Lbk
No,
82
28.28
126 43.44
l3l
38.08.
124 36.0s:
86 21.92 82 28.28
89
25.87
349 100.00 345 100.00 290 100.00 344 100.00
Old Central Legislature, Provisional Parliament, Constituent Assembly, Lok Sabha, and Rajya'Sabha.
State Legislativc Assembly, Statc Legislative Council,. and Princely State Legislatures and U.T. Legislatures'
gB
cHANGtNc pollTlcarlBEr.IiESENIA3IoN.IN INDIA
Table 27: llsq shoqe ,that. qompared- to the Firqt I,oF Sabha, thc perc€ntagc of ruling party Members having prcvious experience of Central legislature had significantly increased in
Sabha (52.47 per cent), while that of Members without any legislativc experience had almost correspondingly decreased to 24.92 per cent, The intake of legislators with State legislature cxperiencc, howevcr, remaioed more or less 'the same (22.07 per cent in thc First Lok Sabba and 22:61 par cent in the Fifth Lok Sabha). From the Fifth to the Sixth Lok Sabha and from the latter to the Scventh Lok Sabha, the ?ercentage shares of all these categories of Members registered wide fluctuations. For instance, in the Sixth Lok Sabha there was decline of more than 46 per cent in the number of .ruling party legislators having previous experience of Central lcgislature; the share of Members with State legislature background increased by more than 92 per cent; while that of Members 'without any legislative eiperience increased by 13.4 per cent.
ile f ifth Lok
Similarly, from. the Sixth to the Se venth L,ok Sabha, thc representation of Members with past Central legislative expericnce increased by nearly 35 per cent, while that of Members with State legislati've background and of those without past legislative experience decreased by 20 per cent and 8.5 per cent respectivelY.
share of legislators having cxperience of an earlicr Central legislature, and tbe consequent swclling. in the number of Mcmbers with State legislature background as io the Sixth Lok Sabha can be understood in terms of lhe dislodging of the thirty-year old Congress rulc for the first time. Diagram VIII shows separately irt each of the four Lok Sabhas under scrutiny, the fluctuations in the relative share of th€ three categories of ruling party legislators
The fall
in the percentage
identified above.
If
at Diagram VIIIr
we can clcarly sce that Sixth Lok Sabha had as many legislators with Central legislature cxperience as having no legislative erperiencc at all. From tbe Fifth to the Sixth Lok Sabha, it also shows ste;p we look
T'
8A$T, LECISLATIVB EXPBRIENCB
.-.
'celr*Al- ulostlrung expcnlexe ExPmltil(e iirit r-totstrrucetxPER'eNcE No isststrrrvg ::------
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SIX TH
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ir rxt
stvE!lTH 'iEl.1B[,R3
cIrANcrNc
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decliae in thc share of Menbers with Central legislature background near correspouding incrcasc in the sbare of Members witb State legislaturc cxpcrience and marginal increase in the case of legislators having no previous experience, As against
this, from the Sixth to the
Seventh Lok Sabha,
tbc perccntage share of legislators having previous
Central Iegislature experience increased remarkably, yet in comparison rvith the Fifth Lok Sabba the representatiotr of this category was lower by no less than 37 per ccnt.
It is significant that even in thc First Lok
Sabha the
category represcnting Members with preVious Central lcgislature background was better represented, thoug! only marginally, than in the Sixth Lok Sabha elected cxactly 25 ycars later in 1977. True, decline of such magnitude in thc numbers of this category can, to large extent, be attributcd to the change of the Central Government, but even tbe First Lok Sabha, as the name itself suggests, was fhe first evcr Lok Sabha ofthe Indian Parliament yct it had greater percefiagc of Members with Central legislature background. Even as we compare the relative length Central legislature experience in the Fifth, Sixth and the Seventh Lok Sabhas we find that thc Fifth Lok Sabha had much more experienced Members tban the lattcr two as shown in Table 2g.
As already stated
(Table
27), compared to the Fjfth Lok
Sabha, the Sixth Lok Sabha had I3.4 per cent more Members
baving
no
at all. The
share of this category however fell by nearly per cent in .the Scventh Lok Sabha. Even among those who had becn in earlier Lok Sabhas" the length of erircriencc in the case of Fifth tok Sabha was relatively mubh large than the latter two. For instance, com. pared to the Sixth and thc Sevea,th Lok Sabhas" the Fifth Lok Sabha bad respectivcly l?6 per cent and 124 pcr ceot more Members having expericnce of four Lok Sabhas; about 5? per ccnt and 38 per cent more Members having cxperience of lhrcs Lok Sabhas. The ruling party itr thc Sixth and tbe Sevcntb Lolr legislative cxperiencc
&ll
]PAST LEGISLATIVE,EXPERIENCB
Iable-28 Distribution of Ruling Party Members in the Fifth, Sixth aad th! Seventh Lok Sabhas by their Previous Lok Srbha Experience
Lok Sabha
Fifth
Lok Sabha Sixth
Seventh
Lok
Sabha
No. Per cent No. Per cent No, Per cent Ekperience of one Lok Sabha Experience
Lok
Experience of three
I-ok
Sabhas
Experience of four
I-ok Sabhas
t5
21.74
JJ
49.14
44
25.14
1i
13.71
8.70
2l
12.01
4.35
5.35
4.3s
3.82
of two
Sabhas
60.86
86
l5
Experiencc or five Lok Sabbas
Total 175 100.00
69
100.00
l3
131
55.72
25.19
9.92
100.00
Sabhas, however, had resp:ctiv.:ly 24 per cent and 13.39 per cent more legislators than the Frfth Lok Sabha who had becn members ofjust ono earlier Lok Sabha. It may be of interast to note that of the total 290 legislators of the ruling, party
'intheSixthLokSabha,jultthree,i'e.namerel.03p:rcent of its Members had been in all the previous Lok rbhas, while thc comparative figures for its predecessor work out to 21 out of total of 345 which is more than per cent, In the Scventh Lok Sabha however, there was no Member of tbe ruling party having erperience of all the earlier Lok Sabhas. Thus, we find that compared to Congress, the Janata Party in thc Sixth Lok Sabha had far less experienced and seasoned parliamentarians as indicated
in Diagram IX.
82,
csANcING poLrrIcAL REPlEsrNTATigir lN iNDde
Ff
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PAST LSCISLATIV! EXPERIENCB
83
As already stated, the ruling party even in the First Lok
Sabha had
bigher percentage of legislators having experiencc ofa Central legislature than in the Sixth and tbe Seventh Lok Sabhas. In this context, it is important to remind that of the total 289 Mer,rbers of the ruling party in the Sixth Lok Sabha, as manv as 70 Members, i.e., more tban 24 per cent of them had no other claim to seat in the Lok Sabha except that they had been 'social and political Workers,* (See Teble 2l). as
against this, the share of this category of legislators in the Seventh Lok Sabha was considerably lower-4g Social and Political Workers out of total 344 lvlembers of the ruling party i.e., nearly 14 per cent as compared with 24 per cent in the Sixth Lok Sabha. State.wise Break-up of the Ruling party Legislators in the First, Fifth, Sixth and the Seventh Lok Sabhas by lheir past Legislative Experience
With few exceptiors, most of the States included in. our survey have been found to be following almost the same pattern, [See Appendices V(i), V(ii), V(iti), and V(n)j minor variations therefrom notwith stand ing, as the one observed at the riational level. (See Diagranr VIII). To facilitate analysis, we have, however, grouped lhem in the follor+ing four
categories:
(a) (6)
States from which at least 25 per cent Members invariably had experience of Central legislature; States which invariably return
their
representatives
ground;
(c)
with
20 per gent or more of State legislatule back_
which returned 25 per cent or more of rhcir Members without any legri*latjve experince in eech of thc fcur'Lok Sabhas under examination and States
l.{titsbhA bad n€ady {60 per cent niorc ifaxareers of, this catqSofy {'hn the Fifth Lok sabha; 24.22 per ccnt as aSait The Sixtlr.
ll,14
Fo; €@4.
84
cHANcINo PoLITI0AL
(d)
States which do
not fall
stat€d above.
in
lN INDIA
REPRESENTATIoN
any of the tbree categories
We may, however, clarify that neither of the categories identified above is exclusive and that classifcation has been
done more for the sake of convenience.'a State placed under onc grouping, may well, in some other respect have traits overlapp-
ing with those of another category'
The States of Assam, Bihar, Gujarat, Haryana, and Orissa fall in the first category, namely, States which invariably return at least 30 per cent of their representatives with Central legislature experience. Of these five, Assam and Bihar fulfillcd this criteria in all the four Lok Sabhas under scrutiny, while Fifth, Sixth and tbe Gujarat, Haryana and Orissa only in Seventh Lok Sabhas as they were non-existent at the time of
the First Lok Sabha. The representation of all the three types of Members, viz., those having exp:rience of previous Central legislature; those with State legislature background; and those having no legijlative experience at all, from each of these fiv€ States is shown in Tables 29(t)' (tr)' (ttr), (lv)' and (r')
Table 29(i) -Assam
4t ;lbha o. Experience First Fifth
Sr. Type of Legislative
Sixth
Seventh
r(50.0)
1.
Central
4(33.3)
8(61.5)
l(33.3)
2,
Statb Legislature 3(25.0)
2(r5.4)
1(33.3)
3.
No Legislative
'..
Legislaturc
E*Fet;eqce
5(41.?)
3(23.r)
'(33.3)
1(50.0)
UJ
PAST LECISLATIVE BXPERIENCB
Table 29(ii)-Bihar Sr. Type of Legislative No. Experience
"1.
Lok Sabha
First Fifit
Central Legislature ls(34.1) 22(5',1.e)
2.
State Legislature
3.
No Legislative
Sixth
Seventh
18(35.3)
7(2s.e)
7(rs.e) 6(ts.8) 22(43.1) 14(sl.e) 22(50.0) 10(26.3)
Experience
ll(21.6)
6(22.2)
Table 29(iii)-Gujarat
Sr. Type o.f Legislatiue No. Experience
Lok Sabha
Firth Sixth
Sevnth
7(28.0)
1.
Central Legislature
4(40.0) 8(s7.2)
2. 3.
State Legislature
2(20.0) 3(2t.4) l2(48.0)
No Legislative
3(21.4\
6(24.0)
4(s7.t) 4(44.4)
3(60.0)
Experiencc
Table 29(iv)-Haryanr
Sr. Type of Legislative No. ExPerience
l. Central Legislature 2, State 3, No Legislative Experiencc
ffi
Lok Sabha
3(42.e) 4(44.4) 2(40 o) 1(l r.r)
&6,
CIIANGINC POLITICAL RSPTESSr,rDATIqq TN $&TS
Table 29(v)-Orissa
f.r.
Type of Lsgislctive No. Experience
Lok
Ftrst Ffin--S*tE-Se't;nti-
1.
Central Legislature
4(30.8) 5(3s.8)
7(36.e)
2.
State Legisla.ture
2(1s.4) 7(50.0)
9(47,3)
7(s3.8) 2(14.2)
3(1s.8)
No Legislative Experience
In the case of Assam and Bihar, the representation of members having past legislative experience can be se,:n to be higher in the Fifth than in the Sixth Lok Sabba, and for obvious reasons. But from Fifth to the Sixth, this percentage fell by neatly 46 per cent in the case of the former and by more than 39 per cent in the case of the latter. As regards tbe remaining three States placed under this category, the percentage of such Members fell only in the case of Haryana, wbile from the other two states-Gujarat and Orissa-the percentages fell, but only marginally. In all other respects, all these States seem to follow thc overall national pattern, except that the State of Haryana stands out among all others in sending strikingly lower percentage of legislators who have had no legislative experience whatever,
The States of Uttar Pradish, Gujarat, Maharashtra, Rajasthan, and l{aryana fell in the seeond eategory, in that, all of them have beeu consistently returning 20 per cent or more of their Lok Sabha representatives with previous experience ofa State Legislature. Tables 30(t), (ir), and (til) show the relativc
position of these States in returning Lok Sabha r€presentatives by the specified experiencc categories. (See Tables 29(iii\ and (r'r) for Gujarat and Haryana respect.ively).
qt
?AST LEGT5LATIV! BXPERIENCE
Table 30(i)-Uttar Prailesh
Lok
Sr. Type of Legislailve No. ExPerience
1. 2, 3.
Sabha
Ftfth
Sixth
Seventh
Central Legislature 30(41.1) 41(56.e) 18(21.4) 20(3e'3)
i6(21.e) re(26.4) 3e(46.4) 17(33.3)
State Legislaturc
No Lagislative Experience
27
(37.0\ 2r(16."1)
27
(32.2)
14(27 .4\
-Table 3O(ii)-Maharashtra
Sr. Type of Legislative No. Experience
t.
Csntral Legislature
2:
State Legislature
3.
No Legislative Experieace
rq48.?) 5(2e,4)
r2(32.s)
s(20.5) 7{4r.2)
l5(40.5)
12(30.8) s?e.4)
0(27'0)
Table 30(iii)-Rajasthan
Sr. TYPe of Legislative No, ExPerience
1.
Central Legislature
,)
State Legislature
J.
No Legislative Experience
7(so.o) 5(20.8) 3(lq.?i s(35.8) 8(33.4) l0(62.6) 2(14.2)
l1(45,3)
3(18'7)
s8
CHANCING POLITICAT REPRESENTATION IN INDIA.
of
legislators with State legislature backgrounds increased marginally from the First to the Fifth. Lok Sabha. But from tbe Fifth to the Sirth Lok Sabha, it rose strikingly by more than 100 per cent ir the case of Maharash(ra and by tearly 77 per cent in the case of Uttar Pradesh. It rose-. in the cese of Gujarat and Haryana (Tables 29 (iii) and, (rr) respecitively) as well, but only marginally. As against this, from the Sixth to the Seventh Lok Sabha, tbe representation of this category of legislators actually fell by morc than 39 per cent in the casc of Uttar Pradesh while in the case of Maharashtra. it fcll only marginally. Only in tbe case of Rajasthan there was. an unprecedented increase of more than 88 per cetrt.
The representation
In fact, an analysis of thc behaviour pattern of different states in returning legislators of category precludes any possibility of gencralisations. For instance, in the Sixth Lok Sabha, againstthe national aggregate of more than 92 per cenf, increase in the numbers of legislators with State Legislature 'backgrounds, not only was there marginal increase in the case of Gujarat and Haryana, it even fell by neaily .7 per cent as far as the State of Rajasthan is concsrned. Variations in the pcrcentag€ of state level legislators returned to varibus Lok Sabhas" notwithstanding, the fact however remains tbat these are the states which have consistently been returning morc legislators of the said category than any other state of the Indian Union.
of
pcrsons with no legislative experience whatevern into the Lowcr House of the Indian Parliament is understandEntry
'ablc to an extent so far as the First Lok Sabha is concerned; But it is interesting that no less than 25 to 30 per cent ofthq Members of the Lower House of the Indian parliament walk into 'Lok Sabha without any legislative training even after 30 years history of free Parliamentary elections from the grassroot level upwards in the country. Althougb, the two states of West Bengaf and Himachal Pradesh alone fall more conspicuosly within the. purview of the third category, practically, each and every statE of fte Indian Union has its share of such Memberr in cach Lok -Sabha. The relevart data in rcrpect of West Bengal an&
PAST
L,
EGISLATIVE
DXPERTENGE
89
llirnacbal Pladesh is, however, given in Tables 3l(i) and (t,).
Trble 3l(i )-We st Bengal Sr. Type of Legislative
Sixth
Seventh
2(14.3)
l(20.0)
StateLegislature 2( 8.8) 5(38.5) 7(50.0)
3(60.0)
No, Experience
,. '2. 3.
Lok Sabha First Fifth
Central Legislarure Z(30.4) 5(38.5)
No Legislative
Experience
l4(60.S) 3(23.0) 5(35.7) t(20.0)
Table 3l (ii)
Hirnacbat Pradcsh
Sr. Type of Leglslative Lok Sabha ..-__..',--------.--=|-i---No. Experience lirst tt th Stxth
Seventh
l.
Central Lcgislature
2(66.1)
z.
Statc Legislature
J.
No Legislative Experience
3(75.0)
3(75.0)
r(2s.0)
1(33.3)
r(2s.0)
Tbc State of West Bengal has been found to return tbc highest percentage of its representatives r,vithout any legislative cxperience. In the Fjrst Lok Sabha, the stale returned nearly 61 per cent of its representatives who had no legislative experience at all, which is by far the highest for any Indian State in any Lok Sabha. Even in the Sixth and Seventb Lok Sabhas,
West Bengal returned no less than 35.7 per cent and 20 percent respectively of .its Lok Sabha Members from amongst this. categoryi
90
CHANGING POLITICAL RPTREfBNTAIION IN INDIA
Madtya Pradesh and thc Union Te tilory of Delbi have been found to fall in neither of the three categories identified .above. The representation of legis,lalors refurned from each of them in the four Lok Sabhas under discussion is being given ia Tablcs 32(irand (ff) below. Table 32(i)-Madhya Pradesh
'Sr. Type of Legislative No. Experience
Sixth
l.
9(24'3) l0(28.6)
Central L:gislature 6(26.1) 15(71.4) State
3.
Legislature 4(17.4) 3(14.3) l9(51.4)
No Legislotivc
Experience l3(56.5) 3(14.3)
Seventh
l0(28.6)
9(24.3) l5(42.8)
Table 32(ii)-Delhi
Legislative Lok Sabha No. Experience First Fifth Sixth
Seven'th
t. Central Legislaturc
1(25.0)
Sr
Type of
State Legislature
Nq l-egislative Experience
2(28.6) 3(42.e)
1(14.3) 3(42.e) 3(75.0)
4(57.1) r(r4.2)
In the case of Madhya Pradesh, if we compare the figures for tho four Lok Sabhas, rather unique pattern of representation can be .seen. In each of the four Lok Sabhas under of its Ecrutiny, the $tate has returned highert representativcr from di.fferent catagory in the First, it is 'the Mcmbers with no legislative crp€ri€ ee pcr cont) in ths Fifth, it is the Members with Central Legislature
?AST LEG1SLATIVB EXPERIENCE
9l
(71.4 per cent); in the Sixth, it is the Members with .State Legislature background (5t'4 per cent); and in the -Seventh, once again, it is the Members without any legislative o"p.rin.. who dlminate (42.85); Delhi, however, does not show .any striking feature in its pattern of representation' except case ttrat in rtre Fifth and the Seventh Lok Sabhas' In the ,of the former, it returned as many as 57'1 per cent of its legislators who had no legislative experienc-e-the highest in that in the country for any State of the Indian Union no less than House while in the case of the latter, it returned back?5 per cent of its representatives with State legislature ground, and had no legislator with nil parliamentary ,Jxprrience' It may be of interest to note that this was greater Sabhas by far' Lok the of any in aggregate national the than averag€t ln .and nearly 130 per cent greater than the national 'the Fifth Lok Sabha'
.€xperence
Theimoortanceofvariationinthepatternofreplesentation -fromindividualstatescannot,however'bestretchedbeyond what .a certain point. Frorn the point of view of present.study' 'js more important is tbe overall picture emerging from this analysis.
in tbe The foregoing examination of legislative experience lfoui Lok Sabha-First, Fifth Sixth and the Scventh-indicates
per ccnt of Lok most importantly that as many as ?0 to ?5 whether :Sabha Members have previous legislative experience' quarter of ,at the national or the State level' Only about AIso the Jvlembers have tro previous legislative experience' of cent per ?0-80 nearly of stint Snbha the Lrk that two politicians in the country does not extend .beyond little approximately cent, p., iO-SO remaining Of the ierms. ioi, tr,oh two-thirds see third term, and less than one'third fourth term. good number of Members are drawn from Statc legisexperience does not though cven well, as background ',lature popular steprecessarily appear to be the most convcnient or -ping stones io sest in the Lower House of the Indiaa Pa'rlia' fient.
CHAPTER VII
CONCLUSION
In 1947,India inherited not just parliamentary structure but aiso an impressive leadership, qell trained in operating.
parliamentarv institutions and modern state apparatus, In, course of time, this proved to be India's single most importart: asset in running in the post-independence era. These people belonged essentially to the small but relatively afruent middle class of India, and deeply imbued with thE, iiberal ideologies of the West. Most of them were deeply drawn into the freedom struggle and saw its successful culmination into independence in 1947, and later on constituted the single. largest chunk of leadership in the first elccted Parliament of' 1952. free India
of
and operation of tbe com.' plex system of India did not pose any major intrac. table problems in the initial years of inCependence. The ruling urban elites, under an able national leadership, espccially of^ Jawaharlal Nehru, was able to make important strides in, national developrnental spheres, The successive five ycar' .plans, and the national elections, both at the Central and theState levels, however, saw thc slow and imperceptible change, the pmrer complexion of the country. Increased rural investmiddle peasantry often called men ts, growth of the ne The governance
the
93
,coNCLUSloN
conscio usincreased PoPular and '.'progressive" farming forces in the Indian Politics' ness heralded the rise of new cl ass,
several respects, the General Elections
ln ithe nature
of
1967 presaged
map of the emerging changes' The considerably especially the Lok Sabha' altered -"f..r.J ooOi"r,'poiitit," more began to be visible in dimensions troubled mood refiectlhe ""01f*;'"t* merely changes oidihese ;;-;"". taking place changes basic the reflect they did fi1h..""n*v or ,.i,n
of
the bodY PolitY
changing pattern the of reflective more is institution No power politics of- the country thao the of epeciall-v ;"li;; does the Lok Sabha equatiors "f power What "the Lok Sabha.. whose favour This in and years' the ouer t""aal especially the """tp"*f* .was our central concerninihe present study' th^e..First' Fifth' Sixth and in party ruling the of -'S"o.ntf, are the major foltowing ""tp*i,i"t The Sabhas. lot ifr. .conclusion s.
legislative assembly any in structure age of fhe reievance '(A) '' -'in deciding the quality of its deliberations cannot be underMembers of Parliament are younger instance' For estimated' i"""i r" be ''more inctineO than their elder toward"'ideo' logical thinking"'1
of
the Indian 51-60 (together desigParliament, the age'groups 36-50 and group) continue to rem.ain the most
In the Lok Sabha
or
tbe Lower House
nated as middle-age of .the frvoured or the "colmanaing" groups lost ground electorate tbe young age-group of 2S-3j ]r.ave so far as Sabha' Lok ieventh the and First the between (25-35) and the old (61 and young tbe of shares ."tutiue i}t.
-*1.
of- th€ British and study comparative al in et I( B.tt*h the former to Italian legislators found thc younger Members Bertsctt' Sec-Gary be more icclined towarAs iJeotogicaf thinking. systemsT David ru. wooo, comparing- Political n"i"r, p. lotrn witev and -Sods Power aad ?oticv rtt rn'ee iirLli'il'r"* v"trt
Inc. 1978 P. 89.
94
CEANGING TOLITICAL REPRESENTATICN
N.TNEII
above) groups are concerned, the voter app€ars to show a. distinct preference for the older and more seasoned politicians. Thus, rvhile the middte.age group has been able to maintain steady hold, the youngcr group is being gradually replaced by the older group. The numbers of the
younger group from position of being two_and-a-half. times gteater than the older group in the First Lok Sabha". declined to one,half of the latter in the Fifth Lok Sabha. and to one-third in the Sixth Lok Sabha.
In the Seventh Lok Sabha, however, the relative of this group looked up for the first time in 30 years.
share,
Among the states, the younger group has found support of the electorate from Bitrar, Uttar pradesh and. Madhya Pradesh. Assam and Gujarat, on the other hand, have becn found to return largest number of older
politicians.
(B) Contrary to all expectations, female representation in the Lok Sabha has not improved in spite of adult suffrage, equality of sexes, and 30 years of all_round Drosress and developmEnt.
In
crods-national study of sex related di{Ierences in pclilitical activity in Austria, India, Japan, Norherlands, Nigeria, United States and yugoslavia, Sidney yerba, et. al, concluded tbat it is tfue that women are, on the average, less psychologically involved than men, but that difference is reduced when women are, educated...',2. But our study shows that this has not been the case in India. Inspite
of more than 136 per
cent increase
in
feinale literacv between 1951 and 1971, the rcpres:ntation of women jn the Lok Sabha has not correspondangly iocteascd. .dlthough -the glaph
of .rso$en,s r€prasonlstion in the Lok Sabha is 'faf fto6 toirg uti*faaofy, .?hro we tlke look u:
dt,' Eq wttfy
:,1
II. Nb .4nd Jae.on Kim, parttcrpdldn ond r.n tteni affii;o, ffi ;' 6ffi ffi
:rUniv€rsity Prcas, 1978. p. Ze|.
9'
G{NCLUSION
elsewhere on the' at the perfofmance of their counterparts either' With alnhe- we find th&t tboy have not fared too badly' L' Lok Sabhas so far'5.04 per cent representatro io the seven and West German' Indian women are next only to their Swedish
the Democratic world is concerned' can catch up' they go before to way long They have however H'nguty' Yugoslaviasocialist countries tit
;;;;;;';;;i; ,o fu. u' ;iil;;
etc. (See Table 33).
Table-33 of Selecteil Countrles Representation of Wonen in Legistatures Name of tlte countrY
Canada
China Egypt England
Ethiopia France HungarY Jndia
Iraq
Japan Sweden
Sri Lanka
USA USSR West GermanY Yugoslavia
ent ag
Re re sentation
IVomen Members 0.3 9.9 4. 1.6
20.0 5.04 1,4
25.4 4.1
2.3 31.0 6.1
20.0
of
e6
CHANGING POLITICAL REPRSSENTATION IN INDTA
to the First as wEIl as the Fifth Lok Sabhas,: tbeir representation was down by nearry one-harf ii-irxtu rok Sabha. This was however rEversed in the SeventhLot SuUtru sense in the that agrinst 3.4,per cent representatfn of this category in the Sixth Lck Sabha, its share inc.earrO to tfre Compared
average of
per cent as in the Lok Sabhas before the Sixtb.
Among States, Uttar pradesh and Assarn are the onlv States which have consistently returned female representative-s to each Lok Srbha. (C) Sixty^ to. Sixty-five per cent of the members in alt the four Lok Sabhas examined, hold Bachelor,s or higher egrees. Thus. the educational standards of ".;l;;;; the ruling legisla_.
tors have been consistentiy high over tlte last 30 years. We did find, however, that the educational tevel of tle Sixth Lok Sabha was considerably lower than the Fifth Lok
DaDna.
It
may be interesting to record that compared ro most other legislative assemblies of the world, the representatioa of the "advanced" education group is the highcst in In6ias, Table 34 illustrates this point. As regards the break-up of the ruling party legislators in -rcriaired the Lok Sabha by educational levels, ii iras unchanged, except for marginal variations
Most individual Ststes have pattern of representation similar to the overall national pattern. The States of ,Assam, Orissa and West Bengal constituting the Eastern flank of country, are hovever unique in tliat they lrave been found to return highest percentages of, collegeluniversity dropouts.. The all-India u"rrugi, of such Members in any Lck Sabha so far are nearly one-half af tiose from these three States
3, rbid. P. 300
97
CONCLUSION
Table-34 Percentage of
Aitvanced Ettucateit GrouPs
in
Selecteil
Countries
Proportion of Population with advanced" Education
Nation
Per cent'
Austria
Proportion
of
Local Elected
Leaders with advanced" Education
O,terrepresentation
of those with
"advanced" Edu'
cation in
Local
Elected
Per cent
Leadership Per cent
l9
2.4
India
l0
IJ
1.3
Japan
l0
19
r.9
Netherlands
16
29
1.8
the
4.0
Nigcria UDited States
JZ
3.6
Yugoslavia
44
6.3
The defnition of "advanced" education varies from nation to nation depending upon tbe educational distributioq in each nation. In India, it means post'
primarY cducation'
Note: Table from Sidncy Verba et.
aL' P'300'
issue rclates to tbe occupational rcprescntation in the Lok Sabha, espccially the nature of in' terests tbe House represents. Agriculturists, Lawyers, and
(D) By far thc most important
Social and Political Workers are the three major occupational categories of tbe Indian ruling legislators. Lawyers, in most countries are "thc single largest occupational category in Parliament, followed by agriculturists, and businessmeo, or in
98
cHANcTNG
pot-rrrcll
REpREsENTATToN rN rNDra
'Western European couhtries
rrith large communist and socialist parties, by farmers and 'workers".a The Iqdian Lok Sabha started iri this tradition of an over-wLblming representation of the middle class urban legal elites.
One of the most significant development in the occupational composition of-the Lok Sabha, between the First and tbE S€venth Lok Sabha, has been the gradual replacement of lawyer legislators by the agriculturist Members. From position'of being the Iargest occupational category in the
Lok
group had slumpcd to Sabha, Lawyers as the third po;ition io thc Sixth Lok Srbhas. While in the Seventh Lok Sabha the legal profession emerged as the second largest occuptional category, the agricultuial ildiS-" clearly emerged as the dominant interest represented in th€ Lok Sabha. Their repr'esentation in the Seventh Lok Sabha was over 40 per cent of the ruling party members. This shift is by far the most significant change that has taken:plac€ First
in the Indian Lowet House reflecting profound political change in the power configuration of the country.
An interesting feature of the Lok Sabba discolcred duringthis study is that l0 to 25 per ceqt ofthe Lok Sabha
99
,€ONCLU$ON
occupation exccpt'social other no have to declare Menbers p"riii*f woik" From purely research ""a to-delve deepcr into the^socio-ecomlc
il#;;"
base
of
p"iil1l]:l
interesting Lok Sab.ha' DiFcthis category or legislatori in the
t* S",.t t.rp;J;i
ic of thi tndian Union do not vary significantly reoccupational break'up of their respective
Presentatives. ,(E) Nearly 70 per cent
t"'rr"""^i.."
of the Members in any Lok
Sabha previous legislative experience
lound to have Compared to thc level' State or Central the at whetber Sab-ha had the lowest other thrce Lok Sabhas, the Sixth Lok had had central legislaturc who M"tttt* li ;;;;;;"6" experience.
from the indiviAs far as the manner of representation the overall national aggregates less or more it States, dual
Gujarat' Howevcr, the States of Assam' Biher' "u,r"ro. to be most consistent found been have orissa lnd ;;;;;" legislature experiCentral with legislators lo- i"ioroiog Gujarat and tl,. stites o1 Uttar Pradesh' Maharashtra' legislaturc State "n..; ii;j;;;;"" in returnins legislators with Bengal a.nd Himachal West of Siatesthe i"ift't-*"at""d anv polirical experiwithout lcgislators t;"rning ;;;;il;t ence.
€oncluding Observation study is the basic the of finding important most Briefly, the power from the urban middle.class as
h;i;; tf
political
reDresented
;il;;;
by
the
lcgal profession'
lh:, 1t:l-.ltricultural the power structure
fJ"s theirk Sabba represents has systematically
im-
class of the country. The Agricultural cent of the^rulins party per 16'51 from ;;; il *desentation intheFirstLokSabhatoover40peicentinthe'SeventhLok in favour- of the. agriculturatr po*"i political in .ttift i"un".Inti politics and the the. for both imptications ciass has profound political
directions in which this move is no-t yet clear' It is' will class p"-"tJint "gritutturai politics.of the eighties will the lndian that however, transparent
.economics of the country'
il;ffiil;Jiffc'ent
the fifties or the sixties'
ihe
pclitics of from ihe urbin middle class
,APPENDICES
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CIIANCING POLTTTCAL RIPRSSBNTATION IN INDIA,
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CIIANGING POLITICAL REPRESENTATION IN INDIA
APPENDTX State-wise Distribution
rl(i)
of
Fernale Representatives of Congresr Party in First Lok Sabha
First Lok
Sabha
State
No. of Members percentage to
Assam
6.67
Delhi
6.67
Bombay
Bihar
20.00 :^:.33
Total
llr
,APPENDICES
APPENDIX
II (ii)
of: State-wise Distribution of Female Repre'enlatives Cong'g5t PartY in Fifth Lok Sabha
Fifth Lok Sabha StatelU.T.
No.
of Members Percentage to Total
13.33 6.67 6.67 13.33 13.33 6.67 6.61
Andhra Pradesh Assam
Bihar Delhi Madhya Pridesh Mysore
Tamil Nadu Uttar Piadish
JJ.JJ
TOTAL
100.00
15
AP;PENDIX
II (iii)
Stste-xise'Dlstribution of Fenrale Represertatlves of Janata PartY in tbe Sixth Lok Sabha Sixth Lok Sablm State No.
of Members
Percentage to Totai
Assam
t2.50
Iv{abarashtra
12 50 12.50 37.50 12 50
12.50
Gujarat Haryana
Uttar Pradesh West Bengal
TOTAL:
100.00
112
CHANGING POLITICAL REPRESENTATION IN INDIA
APPENDIX II(iv) State-wise Distribution of Female Xepresentatlves of Congress
(I) Party in the Seventh Lok Sabha Seventh Lok Sabha
State No.
Andhra
of Members Percentage to Total
Pradesh
Bihar I\{aharashtra Madhya Pradesh
15.80 21.05 10.52
3
Punjab Orissa Uttar Pradesh
TOTAL:
15.80 10.52
5.26 2l,Os 19
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Strte-wise Distribution of the Members of the Congress.. Party ln the First Lok Sabha by their Legislative Experience StatclUT
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State
central
No LegislaLegislatures Legislatures tive expefience-
No. Per
No.
cent
Assam
12
Bihar
44
Bombay
38
M. Pradesh
23
4.00 15
15.00
8.00
TZ
Orissa
l0
6.00 8.00 3.00
Punjab
t6
6.00
U.P.
T)
W. Bengal
2J
Hyderabad
74
Madras
M. Bharat Mysorc'
l0
30
30.00
16
Per
cent
No.
cent
3.89 9.09 22 1s.58 18 5.20 10.38
Per
IJ
19
5.20
2.90 12.79. 10.46
/.f ). .04.
1.75.
l0
5.81
20.,17
2]
15.6q,
2.60
14
8.t3.
1.30
t1
6.97"
7.00 1.00 2.W
5.20
l;00
2.60
',.
1.7
4.06
I'2 Pepsu
-E
.". . .- 2,
Ra.jasthan
1.00 3.00
Tr. Cochin :'Saurashtt
V. Pradesh H. Pradesh
.4
1.30
Q'5.9
6.49
,2.32
s?n
t.L1
.1
2.60
0.58 1.75
1.00 '|
Delhi
Manipur
1.00
l.l7
1.00
1.75
5.59
'Tripura Bhopal Coorg Kutch
1.00
Andaman and Nicobar Island Ajmer
1.00
Total
1.30 1.30
0.59
0.59
349 100 100.00 77 100.00 172
(ii) APPENDTX State-wise Distribution of the Members of
Fifth Lok Sabha by their Legislative Experience
.StatelaT
No.
of
Central
State Legis-
Seats Legislatures latures
No.
Per
cent
Cotrgress
No.
Per
cent
No
100.00
in the
Legisla'
tive Expefience
No.
Per
cent
,1.
Andhra Pradesh Assam B,ih4r
Guja.at Maharashtra
29 15 8.28 10 4.41 13 38 22 12.15 4 2.22 l0 39 19 10;49 'E
12.81
4.70
2.57
3.55
7.69
10
12.00
12
13'50
?.s7 10.25
4.io
CI'ANGINC POLITICAL REPBf, TNfATIOTTi ilq TOiT.
134
56 3.50 3.85 2l 15 8.28 11.15 1063.3233.85 33'50 1352'7756'41 72 41 22.65 19 24.34 12 13.50 2't 14 7.19 3 3.85 l0 12.00
M..,Pradc*b Punjab
W. Bcngal U.P. Mysorc Rajaethan Orissa Tamilnailu
t4 l3
Kirala Himacbal Piudesh Haryana
3.86 4 2.22 2 3 2 l.ll 0.55 l:66 2.22
JandK
-{
6.41 2.57 3.85 2.57
234 8.0t
4'74' 3.55'
l'15' 3.85
::':
Nagaland
Tripura Nofd
-..;-
Manipur ;;0; Goa, Daman and Diu lDelhi 72l.n Andaman and Nicobar Islands Arunachal
1.28
1.28
1.15.
4:lo
0.55
Pradesh
Laksbdwcep Pond.icherry Drdra
0.55 1.15
and
Havcli Chandigerh Negar
Total
34s
1.15
0.55
18r t60.&
78
100.00 86
100.00
r35
lriet{or:bh
APPENDIX V (iii) State-wise Distribution of the Members of Janata Party In 'ihe Sixth Lok Sabha by their Legislative Experience Stote
IUT
No Legis' of Central State Seati Leglslatures Legislatures lative Expe' No.
rtence
No. Per No. Per cent cent Andhra
Bihar Gujarat
-t
5l l4
Haryana
H. Pradcsh J. and K. Karnatka Kerala M. Pradesh Maharashra
Per
cent
122
Pradesh
Assam
No.
1.22
0.79
l8 2t.96 22 17.45 239 9.76 4 4.88 3.18
11
1.22 13.51
3.66 1.22 1.22
2.39
r.22 1
| )',
10.96 19
JI
6.10
l7
1.22 15.08
10.98
5.55
6.10
Meghalaya
Manipur Nagaland Orissa
l4
Punjab
Sikkim Rajasthan
Tripura U, P. W. Bengal
24
s | 5
6.10 1.22 -:.
6.10
Ai 1.ta
5.55
0.79 6.36
11
13.51
27
33.0:2
0.79
2.14
0.79
84
l4
18 21.94 39 30.9s
2.44
5.5s
6.10
136
CHANCING POLTTICAL REPRBSENTATION IN TNDIA
Andaman and
N. Islands Arunachal
--:-
Pradesh ChanCigarh
1.22
Dadra and Nagar Haveli Delhi Goa, Daman, and Diu Lak'hdweep
3,66
tt,
2.39
1.22
Pondicherry
Mizoram
82 100.00 t26 100.00 s2
290
APPENDIX
100.00
(iv)
State-wise Distribution of the Members of Congress (I) party in the Seventh Lok Sabha by their Legislative Experience
StarelUT No. of Seates
Central'Legislatures
No.
Andhra
Pradesh
40
Assa
Bihar Gujarat Haryana
21 25
H. Prarlesh JanCK Karnataka
20
JI
State
Legis- No Legisla-
Iatures
Per No. Per cent cent 23.68 o.76
5.34 t4 5.34 t2
2.29 1.52 9.r7
2.41 11,29
9.67
ive Experien(
No.
Per
cent
6.71
|.12
6.74 6.74
1.61
0.80 0.80 4.83
8.98
APPBNDICBS
Kerala
35
l0
,Maharashtra 37
12
M.Pradesh
MeghalaYa
0.76
Manipur Nagaland 19 Orissa Punjab 12 Rajasthan Tamilnadu
u.P.
0.80 0.80
16
20 51
11.12 01632.41 '1.63 10 8.06 15 16.87 s.L1 ls 12.09 10 lI.2+
20
West Bengal Andaman and
Nicobar
Islands
5.3497.2533.37 4.03 3.05 2.29 10 8.06 4.03 4.58 15.28 17 13.70 14 01632.4r11.r2
Pradesh
r.61
Dadra and
15'75
t.r2
Haveli
Delhi
0.76
2.41
'Goa, Daman
t.rz
Diu
Laksbdweep Pondicberry Total
l0.l
l.l2
'Chandigarh
.and
3.37
0.76
-Arunachal
Nagar
3.37
344
0.76
0.80
,131
100.00 r24 100.00
89
100.00
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atd Verba,
Almond, Gabriel
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Elite Conflict
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CHANGING POLITICAL REPRESENTATION IN INDIA
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and Nation Buitding:
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Delhi, Orient
Wright: The Power Elit e, New Yoik, Oxford University
,,
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politics
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Morcr Gretano: The Buiing C/ass, New York, McGraw Hill, 959.
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thbrJer, Lawrence
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AIBLiOGRAPI{Y
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1971
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"Political Recruitment in .the Indian Natiorral Congress-The Fourth General Elections",.
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42
CHANGINro PoLitrcAL n$PrS3ENTI,TION rN
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zirar Vol'
,sirsikar, V.M.: "Potiticel Ledcrship in India" Economic lYeekly XYll(L2), 20 March' 1965 p9' 517-22' 'iEm:rging Power P1!!tt-1 t-" ,lndia Infre Um1p3thy, 'structural Eliti or ldcologicat Elit€', Indian Jownal of pp' 197'203' Political Science, XXIX, Septcmber 1968 '\[;iner, MYron "The 1971 Elc:tions and tbe Indian Party pp' SYstem", Aslan Srvey, XI(121, Dgcembcr 1971 453-66.
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..The
lodia"' lsarz
INDEX AgeConrposition,2,+20,9344, State-wisc analysis,
Composition lst Lok sabha, 5-7 5th Lok Sabha, 7-9 6th Lok sabha, g-10 7th Lok Sabha, 1Gl3 State-wise break-up, 13-20, 94, l12-g Andhra Pradesh M. Ps.
-Age
Women members, 30
Assam
M.Ps.
16
Age comiosition, 15, Education level, 39, ,14, 46 Legislative experience 84,
96' ll3'22
38'50,
Indira,3
Gen€ral €lections (196?), Gujarat M.Ps. Age composition, 15
9l
Education levcl,4o
Legislative experiencc, 84, 85'
86, 88 Occupation, 66,67,71,75 Wom€n member,3l
86 Haryana M.Ps. Occupation, 59' 66,70,71,75 Age composition, 13, 15 Education lcvel, ,10, 41, Women members, 26, 32 L*'l?lir" cxpcrience'
tsihar
M.ps.
19 Education level,41,42,44, 46, 50 Legislative experience, 84, 85 Occupaiion, 6A, fi, 66, 75 Woman mcmbers, 26 Sertsch, Gary K.,93 Age composition, 13, 14,
clark, Robert P.,
e!
Legislative experience, 90,
66,7l
9l
Women memhers, 27
fEducation level, 2, 33.52, Othcr countries, 97
Occupation, &,61, 9,71, 75 Women m.mbers, 3l Himacbal Pradesh M.Ps Age compqsition. 17, 18, 19 Educations leial,.4l, 42,44 Legislative expcriencc, 88, 89 Occupational Status, 59, 60,63,
*.#lu,l'rli**,,
.Delhi M.Ps. Age composition, 17, 18, l9 Education level,4I,43, 44 Occupation,
84' 85'
96-7
Indian National Congress(I), Janata Party Occupation status of M.ps, Tl W6man M.ps,23, lll
Karnataka M.Ps.
Women members, 30 Kim, Jao-m, 94
CHANGING PCLITICAL RE?RESENTATION IN INDIIT
144
Legislative qxpcrience, 2; 6-91, 99
State-wise break-up, 83-91, 132-7
Madhya Pradesh M.Ps. Age composition, 13, 14, 19 Euucation level, 41, 50 Legislative experience, 90
OccuFation,
1r
't<
62, 64, 65,
Women members, 27 Maharashtra M.Ps. Age composition, 18, 19 Education level, 49, 50 Legislative experience, 86, 87, 88 Occupation, 64, 65, 66, 71, 75 Women member 29 Mords-Jones, W.H., 53
Nehru, Jawaharlal; Nie, Norman M., 94 OccupatioDal status, 53-75, 97-9
State-wise break-up, 59-75,
l:i-st
Rajasthan M.Ps. Age composition, 17, 18, l9 Education level, 48, 50 Legislative experience, 6, 87, 8&;
Occupation, 64, 65,75
Representation, R.uling Party M.Ps. Age composition, +20 Sex
composition, 21-32
Tamil Nadu M.Ps. Women members, 27
Uttar Pradesh M.Ps.
Age composition, 13, 19
Education level, 41, 43,44, 46,50 Legislative experience, 86, 88
Occupation, 66, 68, 71, 75
Women members, 2{, 32 Verba, Sidney, 94, 97
Orissa M.Ps, Age compasition, l6 Education level, 44, 45,46 Legislative experiencc, 84, 86 Occupaiion, 60, 62,63. 64,
West Bengal M.Ps,
Parliamenlary representation, l-2 Pitkin, Hanna Fenichel, 1l
Women M. Ps,21-32, 94-6 Other countries, 95
71,75
Punjab M.k. Women members, 28
91
Age composition 13, 14 Education leyel, 44, 45, 46, Legislativ€ experience, 88, 89 Occupation, 66, 69,71, 75 Women medber, 3l
State-wise brcak-up, 23-32, 96* 110-12
Janata
23
6(lriB
ot eul olfist^$a$lc
FurLre*T|oNs
tsalflsobrffigheXt Bisnas, Alrey
Bhatt.shtryo,
lit*i$,
Goctr
Bhatts@;'l[0ffi;r:' ,ddrr*kosr Gamt floc' the Trcaoure Hourc of Salskrit Words
Dcy, Bata K.
B,urceucraoY,
Drvclopmctrt iSnd
Pubtic Mancg@cnt in Isdia
Religion in SocictY Ptoglarnmc Pcrformrocc
iDurrany, K.S'
fianda, K.L.
Eudgcting
Jrganaadham, V. .Jain, D.K,
50.q)
t0.00' tm.00
Ccotre for-fnlicY
.(eeercb, N. Dcthi". :Desbmukh, C.D"
12J.00:
Adnidstration end Socirt'
Ghrngc Projcct Planaing ald Appraigel Plmned" EconomY Thc
il
90.00
80.00 150.m 75.00 60.00
Indiao Contcrt
?5.00
€haudhury P.N.
Dcvclopmcot
120.0J
.Jain, R.B.
Comparetivc Legistetive t0.0o Blhaviour 60.u} B@d€d Lrbour in India 75.00 Migaots in lndian Mctropolis thcir Strrus Sched$lad Castes in India 15.00, tn St tus of Rurel Womcn 75.00 Iadic $ociat. Logisl$on rnd' tb! t0.00 Rural Poor 110.00 lndirn Policc lltatus of Muslim Womrn in
Surceueratio valucs ia
.Jain, R.B. rnd.
lKamblc, N.D. rKemblc, N,D. lKhan, Muotaz.dli ,iKhao,
Mqmkz Ali
lKhaa, M$mtsa
Ali,
.*Iadro. l.G Mclo!, M" tad$
In4i*.:
50.00
(ii)
*VS
fi&t
i.iitfir
1s1{{ -"s5,9q
Represcnta-
60.00"
Sagar, Sunder .U:r. ..
ti&:. Policy in