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The Problem of National Integration in Plural Societies

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The Problem of National Integration in Plural Societies THE PROBLEM OF NATIONAL INTEGRATION IN PLURAL SOCIETIES: A CASE STUDY OF PAKISTAN (1947-71) Muhammed A* Quddus A thesis submitted in partial fulfilment of the requirements for the degree of Master of Arts in Politics at Brock University* St* Catharines3 Ontario, Canada. 1976. 2 ABSTRACT Pakistan had a plural society per excellence. Its people were divided geographically between two separate regions, spoke different languages, had different cultures and economic structures. Like other plural societies elsewhere, Pakistan also faced the problem of national integration. Cleavages along the lines of traditional attachments are fundamental to any plural society, as they were in Pakistan. But their political manifestation could have been kept within managable limits if the Central Government, overwhelmingly composed of the West Pakistanis, was seriously committed to the task* All that Pakistan needed to maintain her integrated existence was deliberate, calculated and conscious efforts on the part of the Central Government to give the Bengalis, the majority linguistic and geographic group in the country, a partnership in the state of Pakistan, an effective power in the decision-making process of the country, a reasonable share from the economic resources of the country, and to show respect to their hopes and aspirations. In addition, Pakistan needed a national platform to bring her divergent linguistic and geographic groups together for some common, national purposes. Political parties were the only institutions which could have served this purpose, Pakistan miserably failed to sustain national political parties and failed to satisfy Bengalis1 demands. This failure eventually resulted in the falling apart of the political system of Pakistan in 1971. 3 PREFACE As the title of the thesis suggests, this is a study on the problem of national integration in Pakistan, or, to put it more specifically, why Pakistan failed to maintain her integrated existence. Despite the fact that the Muslim majority areas of the North-West and Eastern part of undivided India were separated from each other by about 1,000 miles and their peoples were different in language and culture, the Islamic ideology had produced such a great deal of enthusiasm that the people had forgotten all differences and unitedly fought for the establishment of a separate homeland for them where there would be no domination, exploitation, or hatred of one by the other. This Islamic idealism did not last long, however. Following the establishment of Pakistan in 1947, the Bengalis, who were the single largest linguistic and geographic group in the country, and whose contribution toward the independence movement was enormous, found themselves in a helpless situation—they had very little share in the decision-making process; they were not getting a fair share in the economic resources of the country; and they felt that they were being looked down upon by the West Pakistanis. Realization of these facts generated great discontent among the Bengalis and this led to very strained relations between East Pakistan and the Central Government, which was predominantly manned by the West Pakistanis. Whereas the Bengalis had been clamoring for the redress of their grievances, the Central Government did not pay proper attention to them. When the Bengalis found that a change in their socio-economic-political status in relation to the state of Pakistan was not possible under the existing 4 structure of the system, they played extreme provincialism as a strategy to consolidate and unify themselves for a peaceful fight with the Central Govern­ ment to wrest power so that they could change the very structure and thus assert their rights. But the Central Government was not ready to allow the Bengalis to do so* The former persistently tried to thwart any move of the latter toward this end* The crackdown of the West Pakistani armed forces on the unarmed Bengalis on the night of March 25, 1971, washed away any hope of an integrated existence of the two wings of Pakistan. Thus, Pakistan provided an excellent ground for studies on the problem of national integration in a plural society* Although there has been a growing body of literature on the government and politics of Pakistan, and on the emergence of Bangladesh, there has been no extensive and analytical survey of the politics of Pakistan from the perspective of national integration in a plural society. This study purports to fill this vacuum. The principal focus of this study is on the interaction between the Bengalis and the West Pakistanis; in other words, the politics between East Pakistan on the one side, and West Pakistan and the Central Government, on the other. The study is conducted under the framework of analysis developed in the first chapter. This has obviously limited the scope of the study since attention has been directed only to the four categories of conditions for national integration in a plural society. I am very thankful to my supervisor, Professor Victor M. Fie, and to Professor William H.N. Hull and Professor Roderick Church, Their suggestions, encourage­ ments and advice throughout my graduate career were very helpful. Thanks are also due to Marilyn Koop and Khurshid Jahan for typing a part of this thesis; and to Wilfred Bozzato who spared two Saturdays to proof read the entire thesis. I am very grateful to Brock University for awarding me a Graduate Assistantship} 5 to the Asia Foundation for granting me a partial travel grant, and to the University of Chittagong for granting me study leave and travel grants. I am greatly indebted to my parents for their encouragements and endurance of the pains of my separation from them. Muhammed A. Quddus 6 CONTENTS Title 1 Abstract 2 Preface 3 Contents 6 List of Tables and Graph 8 CHAPTER I Introduction ^Q Methodology and Approach 11 Organization of Chapters 11 The Problem of National Integration i A Framework of Analysis 12 The Problem of National Integration in Pakistan 26 CHAPTER II Political Parties 27 Pre-Martial Law Period 37 Politics of No-party " 53 Parties since 1962 60 Parties and Elections 78 Conclusion 98 CHAPTER III Impartiality of Central Power Elite 100 The Scheme of Pakistan 101 Language and Culture 103 Helplessness of Bengali Politicians 109 Conclusion 7 CHAPTER IV Accommodation of Ethnic Groups 122 The Evolution of the Power Structure in Pakistan 122 Decision-making and the Civil Bureaucratic Elite 129 Decision-making and the Military Elite 131 Decion-making and the Political Elite 132 The Alliance of the Three Elites 134 Bengali Representation in the Three Elites 135 Bengali Consciousness and Bengali Demands on the System 140 Policy Response of the Government 143 Conclusion 152 CHAPTER V Distribution of the Material Goods 153 Levels of Economic Development at Independence 154 The Emergence and Extent of Economic Disparities 158 Impact of Economic Policies and Practices of the Government 172 East Pakistanfs Grievances and Demands 183 Policy Response of the Government 186 The Reactions of the Bengalis 194 Conclusion ^.97 CHAPTER VI Conclusion 199 Appendix 206 Bibliography 209 8 LIST OF TABLES AND GRAPH Table 1 Demographic Differences between East and West Pakistan 29 2 Mother tongues of the people of Pakistan 30 3 Major languages spoken in Pakistan as additional tongues 31 4 Religious distribution in Pakistan 31 5 Occupations of the members of the Constituent Assembly of Pakistan, 1955. 32 6 Occupations of members of the National Assemblies of Pa&istan, 1962 and 1965 33 7 The results of the National Assembly Elections, 1965 87 8-9 The results of the Provincial Assembly Elections, 1965 88 10 The results of the National Assembly of Pakistan elections,1970 96 11 The results of the Provincial Assembly Election,1970 97 12-13 The results of elections to the East Pakistan Legislative no Assembly, 1954 14 East-West representation in the political elite of Pakistan 135 15 Regional representation in the higher ranks of the central secretariat, 1955 137 16 East-West representation in the officer ranks of Military establishments , 1955 138 17 East-West representarion in the army 138 18 East-West representation in the recruitment of the CSP,1948-58 144 19 Representation of East Pakistan among Class I officers in divisions of the Central Secretariat 146 20 Representation of the Bengalis in the Military Establishments,1963 148 20a Background of the civil service officers in influential positions, 1965-70 149 21 Regional Distribution of Industrial establishments in Pakistan, 1945-47 154 22 Regional Distribution of GNP in Pakistan 157 23 Regional Distribution of Toans Sanctioned by Specialized Finan­ cial Institutions 160 9 24 Regional distribution of loans by the HBFC 160 25 Value added by agriculture and large-scale manufacturing industries in East and West Pakistan 161 26 East Pakistanfs share of export and import 162 27 Revenue and Development expenditure in East and West Pakistan 165 28 Commodity imports and exports for East and West Pakistan for domestic and foreign trade 167 29 Commercial import licenses issued to East and West Pakistan 168 30 Industrial import licenses issued to East and West Pakistan 169 31 Percentage of GNP in Pakistan contributed by agriculture and manufacturing industries 171 32 Per capita GDP in East and West Pakistan 177 33 Regional levels of per capita income and rates of per capita growth 177 34 Regional prices of certain products 178 35 Unemployment in East and West Pakistan 179 36 Per capita rural-urban income distribution 180 37 Per capita factor incomes
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