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Ideology and Identity
Ideology and Identity
The Changing Party Systems of India
1
1
Oxford University Press is a department of the University of Oxford. It furthers
the University’s objective of excellence in research, scholarship, and education
by publishing worldwide. Oxford is a registered trade mark of Oxford University
Press in the UK and certain other countries.
9 8 7 6 5 4 3 2 1
Paperback printed by WebCom, Inc., Canada
Hardback printed by Bridgeport National Bindery, Inc., United States of America
CONTENTS
Appendix 267
Bibliography 287
Index 315
TABLES
Indian party politics is ideological. Deep divisions on the appropriate role of the
state have influenced the changes in the Indian party system since independence.
The different ideas on whether the state should intervene in social norms and
whether it should single out disadvantaged groups for special treatment have
long historic lineages. These have had a lasting influence on the transitions in
the Indian party system from the one-party-dominant system to the more frag-
mented system, to the rise of the right in 2014.
We have accumulated multiple debts while writing this book. This is a data-
intensive book, and our largest debt is to Lokniti—the finest collection of dedi-
cated social scientists working in India and elsewhere without whom the data
that forms the basis of this book would never have been collected. We specifically
acknowledge Sanjay Kumar for generously sharing the Lokniti-CSDS datasets
and Himanhsu Bhattacharya for entertaining data requests. The experimental
data that informs key elements of this book was provided to us by Dhananjai
Joshi of Cicero Associates. Not only did he incorporate experimental questions
in his surveys but also offered sage intellectual advice on appropriate question
wording for understanding how ideology informs electoral politics in India.
The second debt is to our colleagues at Berkeley and elsewhere, many of
whom had to suffer through the various incarnations of the argument. Anustubh
Agnihotri, Astitva Chopra, and Pranav Gupta went well beyond the call of duty.
They read the full manuscript and provided detailed comments that have defi-
nitely made this book better. Francesca Jensenius and Susan Ostermann heard
various presentations about the book and helped sharpen the claims we were
making. Susan coauthored a paper with us on conservative political theory in
India, parts of which are central to the claims we make in this book. Harsh Shah
has listened patiently about this book since the day we started thinking about it
and offered quiet but excellent advice.
xiiAcknowledgments
Our third debt is to Pratap Bhanu Mehta and Hilal Ahmed for pointing out
intellectual traditions that we were not aware of. Their suggestions have grounded
our arguments more deeply in Indian intellectual history. The fourth debt is to
many of our friends and colleagues who have encouraged us or provided criti-
cal feedback at particular points: Amit Ahuja, Leo Arriola, Ankita Barthwal,
Pranab Bardhan, Matt Baxter, Kanchan Chandra, Abhishek Choudhary,
Anirvan Choudhary, Poulomi Chakrabarti, Aaditya Dar, Christophe Jaffrelot,
Nirvikar Jassal, K. K. Kailash, Ken Kollman, Tanu Kumar, Tarun Kumar, Adnan
Naseemulah, Irfan Nooruddin, Suhas Palshikar, Rajkamal Singh, Shakti Sinha,
K. C. Suri, Pavithra Suryanarayan, Louise Tillin, Anshuman Tiwari, Ashutosh
Varshney, Gilles Verniers, and Yogendra Yadav.
As we were completing the book, Pranav Gupta’s help with bibliography was
critical. The graphs in this book are cleaner thanks to Aaditya Dar. We owe special
gratitude to him. Shakti Sinha, Director of the Nehru Memorial Museum and
Library (NMML), Delhi, helped us in locating the cover image from the archives.
The argument and data in the book were sharpened by the many presenta-
tions we made across the world and invitations from colleagues at various think
tanks and universities provided good venues for us to test our arguments. We
have presented this work at the Center for the Study of Developing Societies
(Sanjay Kumar), Jain University (Sandeep Shastri), Jindal Global University
(Satya Prateek), the London School of Economics (Mukulika Banerjee), Oxford
University (Maya Tudor), the Tata Institute of Social Sciences (Ashwani Kumar),
and the University of California at Santa Barbara (Amit Ahuja). The comments
and feedback during these presentations were very helpful. Finally, we thank the
opinion page editors at The Hindu and The Indian Express for publishing op-eds
that gave us the chance to test our initial ideas in print.
The work has benefited enormously from the editorial work by Xavier Callahan
and Karen Fien. The comments of reviewers at Oxford University Press have defi-
nitely made this book better. The encouragement and stewardship of our editor,
David McBride, were most helpful.
Kaja, Anuka, and Neela provided Pradeep with daily joie de vivre while this
book was being written. Meenakshi and Meenu’s love and support carried Rahul
through this period. This is for all of them—with love.
Ideology and Identity
Introduction
Ideology in India’s Electoral Politics
India’s first cabinet, seen in the cover photo of this book, seems ideologically
arrayed. Jawaharlal Nehru, the prime minister is flanked at one end by Dr. Bhimrao
Ambedkar, the architect of India’s constitution and a fervent advocate for the state
taking a leading role in addressing social inequities. Ambedkar argued in favor of
a modified form of state socialism in industry, and warned against the dangers of
Hindu majoritarianism and Muslim communalism. Seated at the opposite end is
Dr. Shyama Prasad Mukherjee, who went on to form the Bharatiya Jana Sangh—
the precursor of the Bharatiya Janata Party (BJP)—a right-wing nationalist party
that advocated for Hindu interests and a less interventionist state. Seated between
Dr. Ambedkar and Nehru are Rafi Ahmed Kidwai (an Islamic socialist), Sardar
Baldev Singh (representing the Sikhs), and Maulana Kalam Azad (a Muslim
leader who advocated secularism and socialism). The cabinet members seated
between Nehru and Mukherjee are Dr. Rajendra Prasad (India’s first President
and a Hindu traditionalist), Sardar Patel (an ardent nationalist), Dr. John Mathai
(who resigned from the cabinet because of the power delegated by Nehru to
an unelected planning commission), Jagjivan Ram (a dalit leader from Bihar),
and Rajkumari Amrit Kaur (a consistent voice for classic liberal ideas who did
2 I deology and I dentity
not want special recognition for any community in the Constituent Assembly
debates).
Contemporary Indian party politics is, however, commonly viewed as chaotic,
centered around leaders, corrupt, volatile, and nonideological in nature. What
accounts for this perception, and for the corollary view that elections in India are
rarely if ever genuine contests of ideas, policies, and visions? For one thing, the
institutions of the state have become subjugated to individual interests, as Indian
politicians have made and unmade coalitions, seemingly without regard to the
partners with whom they have aligned. For another, the notion that strong, stable
commitments to sets of ideas are absent from Indian party politics has been rein-
forced by the fragmentation of India’s party system over the past two decades, and
by the subsequent decline of the once dominant Indian National Congress (INC,
also known as the Congress Party and often simply called the Congress). And
yet this perception is also based in no small part on the standard paradigm for
what constitutes ideological debate, and on the somewhat uncritical application
of that paradigm to Indian party politics. That paradigm, memorably established
in western Europe over half a century ago, identifies the dimensions of ideologi-
cal space as those associated with party politics in western Europe, where the
rise of nation-states coincided with conflict between labor and capital, between
the center and the periphery, between cities and rural areas, and between church
and state.
In this book, we claim that what constitutes the standard paradigm of state for-
mation is not entirely applicable to many multiethnic countries in the twentieth
century, a period when the process of state formation has been setting up very
different axes of conflict. In much more diverse countries, the most important
debates center on the extent to which the state should dominate society, regulate
social norms, and redistribute private property (in what we call the politics of stat-
ism) as well as on whether and how the state should accommodate the needs of
various marginalized groups and protect minority rights from assertive majori-
tarian tendencies (in what we call the politics of recognition). These two issues—
the state’s role in transforming social traditions, and its role as accommodator of
various social groups—we argue, constitute the dimensions of ideological space
as it exists in Indian party politics today.
In delineating the parameters of this ideological space, we challenge the domi-
nant view that party politics and elections in India are far removed from ideas.
Indeed, we see our identification of this ideological space as the book’s major
theoretical contribution, as we offer a new way to examine ideological conflict
in multiethnic societies. This innovation also affords insights into the changing
party systems of India, the rise of regional parties, the precipitous decline of the
Congress, and the success of the right-wing BJP. In addition, our perspective illu-
minates the question of why leadership is so important in Indian politics. Using
Ideology in India’s Electoral Politics 3
survey data from the Indian National Election Studies (NES) and from smaller
but more focused surveys in addition to historical data from the Constituent
Assembly debates, we show that Indian electoral politics, as represented by politi-
cal parties, their members, and their voters, taking distinct positions on the two
themes—statism and recognition—that we identify as constituting the ideologi-
cal space of party politics in India.
able to assemble this coalition at least in part because the Congress-led United
Progressive Alliance (UPA) not only lacked a distinct ideological vision in the
years leading up to 2014 but also relied too much on the politics of patronage
as an electoral strategy. Another finding, consistent with our theoretical expec-
tations, is that voters who are ideologically engaged are more likely to partici-
pate in political activity around election time and are able to distinguish among
parties and coalitions when it comes to issues of governance and governmental
performance in general. Indian society and Indian voters have distinct ideas on
the role of the state regarding social issues, and this divide has direct and measur-
able consequences for electoral politics in India and for the assessment of the
government’s performance. Accordingly, we conclude that ideology is central to
the Indian party system.
In chapter 3, we make extensive use of political theory in the Indian subconti-
nent, and we refer to Constituent Assembly debates showing that the ideological
dimensions we have identified were reflected in the concerns of those who framed
the constitution of the Indian Republic. Using texts such as the Arthashastra and
many other sources, we show that the intellectual lineage of the debates around
the politics of statism is long and precedes party politics in India. We also show
that in Indian political thinking the dominant position has been for a limited state,
one that does not intervene in social norms and redistribute wealth (although,
this position was challenged by some of the leaders of the Indian independence
movement and the framers of the Indian constitution, most notably Ambedkar
and Jawaharlal Nehru). Further we also show that the politics of recognition, too,
has roots in the debates that took place among the founding fathers of modern
India (and Pakistan). There was a major divide in pre-Independence India, and
the debates in the Constituent Assembly were over how different groups, espe-
cially historically marginalized groups like Dalits (the Scheduled Castes), the
Scheduled Tribes (STs) and Muslims, were to be incorporated into the Indian
state as full citizens. The consensus was that all citizens should be treated equally,
but there was much disagreement over how this goal was to be reached. The
Indian constitution settled on quotas for the SCs and the STs as the best way to
redress historic social inequities, and it expressly rejected quotas on the basis of
religion. Finally, we link the debate on quotas to majoritarian nationalism—that
is, the demand from elements of the Hindu majority that in a democracy the will
of “the majority” (meaning, in this case, Hindus) should prevail. We show that
opposition to quotas came from two groups of people: opponents who believed
in liberal values, and who saw the nation-state as obliged to treat everyone simi-
larly and not make special provisions for any group, and opponents who stressed
Hindu nationalism as central to the Indian state.
In chapter 4, we discuss whether opposition to the politics of recognition rep-
resents an actual ideological dimension of Indian politics or is instead largely a
Ideology in India’s Electoral Politics 5
“SOLDIER, REST!”
A Russian sailed over the blue Black Sea
Just when the war was growing hot,
And he shouted, “I’m Tjalikavakeree—
Karindabrolikanavandorot—
Schipkadirova—
Ivandiszstova—
Sanilik—
Danilik—
Varagobhot!”
Here Betsey interrupted me. “The deah editah of the Augah has
no need to advise me to read Tuppah, for he is indeed my most
favorite authar. You have devorhed him haven’t you, Josiah Allen’s
wife?”
“Devoured who?” says I, in a tone pretty near as cold as a cold
icicle.
“Mahtan Fahqueah Tuppah, that sweet authar,” says she.
“No, mam,” says I shortly; “I hain’t devoured Martin Farquhar
Tupper, nor no other man. I hain’t a cannibal.”
“Oh, you understand me not; I meant, devorhed his sweet tender
lines.”
“I hain’t devoured his tenderlines, nor nothin’ relatin’ to him,” and I
made a motion to lay the paper down, but Betsey urged me to go on,
and so I read:
GUSHINGS OF A TENDAH SOUL
“‘Oh, let who will,
Oh, let who can,
Be tied onto
A horrid male man.’
* * * * *
A BOSTON LULLABY
Baby’s brain is tired of thinking
On the Wherefore and the Whence;
Baby’s precious eyes are blinking
With incipient somnolence.
“Bimeby, one day w’en Brer Rabbit wuz fixin’ fer ter call on Miss
Coon, he heered a monst’us fussen clatter up de big road, en ’mos’
’fo’ he could fix his years fer ter lissen, Brer Wolf run in de do’. De
little Rabbits dey went inter dere hole in de cellar, dey did, like
blowin’ out a cannle. Brer Wolf wuz far’ly kiver’d wid mud, en mighty
nigh outer win’.
“‘Oh, do pray save me, Brer Rabbit!’ sez Brer Wolf, sezee. ‘Do,
please, Brer Rabbit! de dogs is atter me, en dey’ll t’ar me up. Don’t
you year um comin’? Oh, do please save me Brer Rabbit! Hide me
some’rs whar de dogs won’t git me.’
“No quicker sed dan done.
“‘Jump in dat big chist dar, Brer Wolf,’ sez Brer Rabbit sezee;
‘jump in dar en make yo’se’f at home.’
“In jump Brer Wolf, down come de lid, en inter de hasp went de
hook, en dar Mr. Wolf wuz. Den Brer Rabbit went ter de lookin’-
glass, he did, en wink at hisse’f, en den he draw’d de rockin’-cheer in
front er de fier, he did, en tuck a big chaw terbarker.”
“Tobacco, Uncle Remus?” asked the little boy incredulously.
“Rabbit terbarker, honey. You know dis yer life ev’lastin’ w’at Miss
Sally puts ’mong de cloze in de trunk; well, dat’s rabbit terbarker.
Den Brer Rabbit sot dar long time, he did, turnin’ his mine over en
wukken’ his thinkin’ masheen. Bimeby he got up, en sorter stir ’roun’.
Den Brer Wolf open up:
“‘Is de dogs all gone, Brer Rabbit?’
“‘Seem like I hear one un um smellin’ roun’ de chimbly cornder
des now.’
“Den Brer Rabbit git de kittle en fill it full er water, en put it on de
fier.
“‘W’at you doin’ now, Brer Rabbit?’
“‘I’m fixin’ fer ter make you a nice cup er tea, Brer Wolf.’
“Den Brer Rabbit went ter de cubberd, en git de gimlet, en
commence for ter bo’ little holes in de chist-lid.
“‘W’at you doin’ now, Brer Rabbit?’
“‘I’m a-bo’in’ little holes so you kin get bref, Brer Wolf.’
“Den Brer Rabbit went out en git some mo’ wood, en fling it on de
fier.
“‘W’at you doin’ now, Brer Rabbit?’
“‘I’m a-chunkin’ up de fier so you won’t git cole, Brer Wolf.’
“Den Brer Rabbit went down inter de cellar en fotch out all his
chilluns.
“‘W’at you doin’ now, Brer Rabbit?’
“‘I’m a-tellin’ my chilluns w’at a nice man you is, Brer Wolf.’
“En de chilluns, dey had ter put der han’s on her moufs fer ter
keep fum laffin’. Den Brer Rabbit he got de kittle en commenced fer
to po’ de hot water on de chist-lid.
“‘W’at dat I hear, Brer Rabbit?’
“‘You hear de win’ a-blowin’, Brer Wolf.’
“Den de water begin fer ter sif’ thoo.
“‘W’at dat I feel, Brer Rabbit?’
“‘You feels de fleas a-bitin’, Brer Wolf.’
“‘Dey er bitin’ mighty hard, Brer Rabbit.’
“‘Tu’n over on de udder side, Brer Wolf.’
“‘W’at dat I feel now, Brer Rabbit?’
“‘Still you feels de fleas, Brer Wolf.’
“‘Dey er eatin’ me up, Brer Rabbit,’ en dem wuz de las’ words er
Brer Wolf, kase de scaldin’ water done de bizness.
“Den Brer Rabbit call in his nabers, he did, en dey hilt a reg’lar
juberlee; en ef you go ter Brer Rabbit’s house right now, I dunno but
w’at you’ll fine Brer Wolf’s hide hangin’ in de back-po’ch, en all
bekaze he wuz so bizzy wid udder fo’kses doin’s.”
—From Uncle Remus, His Songs and His Sayings.
Eugene Field, beside being the greatest of newspaper
paragraphers was a versatile writer of all sorts, from Christmas
Hymns to the most flippant themes.
His own personal charm imbued his work, and whether writing
Echoes of Horace or appalling tales of Little Willie, he was always
original and truly funny.
THE DINKEY-BIRD
In an ocean, ’way out yonder
(As all sapient people know),
Is the land of Wonder-Wander,
Whither children love to go;
It’s their playing, romping, swinging,
That give great joy to me
While the Dinkey-Bird goes singing
In the Amfalula-tree!
Once upon a Time there was a Bad boy whose Name was
Reginald and there was a Good boy whose Name was James.
Reginald would go Fishing when his Mamma told him Not to, and he
Cut off the Cat’s Tail with the Bread Knife one Day, and then told
Mamma the Baby had Driven it in with the Rolling Pin, which was a
Lie. James was always Obedient, and when his Mamma told him not
to Help an old Blind Man across the street or Go into a Dark Room
where the Boogies were, he always Did What She said. That is why
they Called him Good James. Well, by and by, along Came
Christmas. Mamma said, You have been so Bad, my son Reginald,
you will not Get any Presents from Santa Claus this Year; but you,
my Son James, will get Oodles of Presents, because you have Been
Good. Will you Believe it, Children, that Bad boy Reginald said he
didn’t Care a Darn and he Kicked three Feet of Veneering off the
Piano just for Meanness. Poor James was so sorry for Reginald that
he cried for Half an Hour after he Went to Bed that Night. Reginald
lay wide Awake until he saw James was Asleep and then he Said if
these people think they can Fool me, they are Mistaken. Just then
Santa Claus came down the Chimney. He had lots of Pretty Toys in a
Sack on his Back. Reginald shut his Eyes and Pretended to be
Asleep. Then Santa Claus Said, Reginald is Bad and I will not Put
any nice Things in his Stocking. But as for you, James, I will Fill your
Stocking Plumb full of Toys, because You are Good. So Santa Claus
went to Work and Put, Oh! heaps and Heaps of Goodies in James’
stocking but not a Sign of a Thing in Reginald’s stocking. And then
he Laughed to himself and Said, I guess Reginald will be sorry to-
morrow because he Was so Bad. As he said this he Crawled up the
chimney and rode off in his Sleigh. Now you can Bet your Boots
Reginald was no Spring Chicken. He just Got right Straight out of
Bed and changed all those Toys and Truck from James’ stocking into
his own. Santa Claus will Have to Sit up all Night, said He, when he
Expects to get away with my Baggage. The next morning James got
out of Bed and when He had Said his Prayers he Limped over to his
Stocking, licking his chops and Carrying his Head as High as a Bull
going through a Brush Fence. But when he found there was Nothing
in his stocking and that Reginald’s Stocking was as Full as Papa Is
when he comes home Late from the Office, he Sat down on the
Floor and began to Wonder why on Earth he had Been such a Good
boy. Reginald spent a Happy Christmas and James was very
Miserable. After all, Children, it Pays to be Bad, so Long as you
Combine Intellect with Crime.
—From the Tribune Primer.
Edgar Wilson Nye, known commonly as Bill Nye, wrote in prose
and also made a success on the lecture platform, as well as in his
newspaper work.
It is now the proper time for the cross-eyed woman to fool with the
garden hose. I have faced death in almost every form, and I do not
know what fear is, but when a woman with one eye gazing into the
zodiac and the other peering into the middle of next week, and
wearing one of those floppy sun-bonnets, picks up the nozzle of the
garden hose and turns on the full force of the institution, I fly wildly to
the Mountains of Hepsidam.
Water won’t hurt any one, of course, if care is used not to forget
and drink any of it, but it is this horrible suspense and uncertainty
about facing the nozzle of a garden hose in the hands of a cross-
eyed woman that unnerves and paralyzes me.
Instantaneous death is nothing to me. I am as cool and collected
where leaden rain and iron hail are thickest as I would be in my own
office writing the obituary of the man who steals my jokes. But I hate
to be drowned slowly in my good clothes and on dry land, and have
my dying gaze rest on a woman whose ravishing beauty would drive
a narrow-gage mule into convulsions and make him hate himself
t’death.
Richard Kendall Munkittrick wielded a graceful pen and his verses
show an original wit.
WHAT’S IN A NAME?
In letters large upon a frame,
That visitors might see,
The painter placed his humble name,
O’Callaghan McGee.
* * * * *