;+3Lo k 0ffnLdf cnk;+vos clwsf/sf] ;+/If0f

Minority Rights Protection in Federal System Report of Constitutional Roundtable ;+3Lo k 0ffnLdf cnk;+vos clwsf/sf] ;+/If0f ;+j}wflgs uf]nd]rsf] k ltj]bg Editor Rakesh Karna ;Dkfbs /fs]z s0f{

;+3Lo k 0ffnLdf cnk;+vos clwsf/sf] ;+/If0f ;+j}wflgs uf]nd]rsf] k ltj]bg Minority Rights Protection in Federal System Report of Constitutional Roundtable k yd ;+:s/0f h]7, @)^( -!))) k lt_ First Edition May, 2012 (1000 copies) ;Dkfbs /fs]z s0f{ Editor Rakesh Karna ISBN: 978 9937 2 5035 1 k sfzs ;kf]6{ g]kfn kf]=a=g+= @^$#!, dlg ejg sf7df8f}+, g]kfn kmf]gm (&&! $^@! )*) km\ofs;m (&&! $^@! )(! O{ d]nm snpktm@wlink.com.np j]em http://www.supportnepal.org Publisher SUPPORT Nepal PO Box 26431, Min Bhawan Kathmandu, Nepal Tel: +977-1-4621 080 Fax: +977-1-4621 091 E-mail: snpktm@wlink.com.np Web: http://www.supportnepal.org uf]nd]r ;Dd]ngsf nflu dfo{gf]/l /fo{6; u 'k O{G6/g]zgn, o'/f]lkog o'lgog tyf ;+3Lo afx ;DaGw ljefu, :jl6h/n}08n] pknaw u/fpsf] ;xof]usf nflu xfdl cfef/ JoQm ub{5f}+. o; k ltj]bgdf pnn]lvt s'g} klg ;fdu Ln] dfo{gf]/l /fo{6; u 'k O{G6/g]zgn, o'/f]lkog o'lgog tyf ;+3Lo afx ;DaGw ljefu, :jl6\h/n}08 cyjf ;kf]6{ g]kfnsf] cflwsf/ls b[li6sf]0f JoQm ub}{g. We acknowledge the generous support of Minority Rights Group International, the European Commission and the Federal Department of Foreign Affairs (FDFA), Switzerland to organize the roundtable. The contents of this report do not express the official view of Minority Rights Group International, the European Commission and the Federal Department of Foreign Affairs (FDFA), Switzerland or SUPPORT Nepal. o; k ltj]bgdf pnn]lvt ;fdu Lx? gfkmf /lxt p2]zosf nflu k of]u ug{ ;lsg]5. xfdl, oblk, o;/l k"gmk sflzt x'g] ;fdu Ldf >f]t pnn]fv ul/lbpdf ;/fxgf u5f}{. The content of this report can be used for the purpose of non-profit motives. We, however, appreciate if the source is disclosed in the reproduced material.

Table of Contents ljifo ;"rl SN Particulars Page qm=;+= ljifoj:t' k[i7 Acknowledgment s[t1tf 1. The Roundtable- Introduction 1!= uf]nd]r ;Dd]ng kl/ro! 2. Ethnic Assertion for Political Space in Federal Nepal 3 - Professor Krishna Hachhethu @= ;+3Lo g]kfndf hft hfltsf] /fhgllts :yfg # k fwofks s[i0f xf5]y" 3. Changing Context of Dalits in Nepal- Dr. Madan Pariyar 12 #= kl/jlt{t ;Gbe{df g]kfnsf blnt 8f= dbg k ;fb kl/of/!@ 4. Ensuring the Rights of Minority Women through Positive 24 Discrimination- Mohna Ansari $= ;sf/ftds lje]båf/f cnk;+vos dlxnf clwsf/sf] ;'lglzrttf @$ df]xgf cg;f/l 5. Power Sharing in Sri Lanka- Experiences & Perspectives 32 - Dr. Jayampathy Wickramaratne %= >Ln+sfdf zlqmsf] af 8kmf 8 cg'ej / cjwf/0ffx? #@ 8f= hodkyl ljqmdf/tg] 6. Minority in Russian Constitution: Principles of Minority 46 Rights Protection - Professor Dmitry Dubrovsky ^= /l;ofnl ;+ljwfgdf cnk;+vosm cnk;+vos clwsf/ ;+/IF0fsf l;4fgtx? $^ k fwofks bdlql b'a/f]j:sl Annexes cg';"rlx? Annex 1: Kathmandu Declaration cg';"rl!m sf7df8f}+ 3f]if0ffkq Annex 2: Roundtable Schedule cg';"rl @M uf]nd]rsf] ;dotflnsf Annex 3: Summmarized Report of the Roundtable cg';"rl #M uf]nd]rsf] ;+lifkt k ltj]bg Annex 4: Roundtable Participants cg';"rl $M uf]nd]rsf ;xefulx? Annex 5: Glimpses of the Roundtable cg';"rl %M uf]nd]rsf t:jl/x?

The current proposals made by the State Restructuring and State Power Distribution Committee under the Constituent Assembly do have encouraging provisions for indigenous nationalities (IN) such as naming 8 out of 14 provinces after sizable INs, and 23 autonomous areas for non-sizable INs. Some other minority groups such as Madheshi, Dalits, women are proposed to have special, equal and other rights. In Nepal, federalism is promoted as a way to bring an end to discrimination and marginalization. However, there is a widespread fear among large number of nonsizable minority groups that the proposed design of federalism and its provisions could add another layer of marginalization and exclusion. Acknowledgement With an aim to provide an interactive space for policy makers, leaders, researchers and practitioners working in the field of protecting and promoting minority rights in federal countries to share experiences and successful approaches of minority rights protection in federalism, SUPPORT Nepal organized a Constitutional Roundtable on the Minority Rights Protection in Federal System on 25-26 March, 2012, in Kathmandu, Nepal. 65 representatives from Madheshi, OBC, Muslim, Indigenous Nationalities, women, Dalit, persons with disability, sexual, linguistic and religious minorities and the Chair of the Minority & Marginalized Communities Rights Protection Committee, members of the political parties, civil society and journalists participated in the roundtable. This report is a compilation of papers presented at the Roundtable. We hope that this report is helpful to those willing to understand the challenges of minority rights protection in federal context and the opportunities that federal system provides to ensure appropriate ways for addressing those challenges. I thank Rakesh Karna for coordinating and facilitating the successful organization of the roundtable and also to edit this report. The roundtable could not be materialized without the support of Nicole Girard, MRG and Martin Stuerzinger of the Swiss Embassy in Kathmandu. Thanks also go to Kapil Kafle for translating the report into Nepali language.thanks to Bikas Adhikari for designing layout of the report. Thanks to Roshana Khadka, Prem Shrestha, Navin Shekhar and other colleagues of SUPPORT Nepal for their management and other support before and during the roundtable. And of course, efforts of our paper presenters and the participants must also be appreciated. Comments and feedbacks are always appreciated. Ganga Prasad Sah President

;+ljwfg ;ef cgtu{tsf] /fho k"g{;+/rgf tyf /fhozlqmsf] aff8kmff8 ;ldltsf] cg';f/ cflbjf;l hghfltx?sf] nflu s]xl pt;fxk b Joj:Yffx? u/]sf] 5. pbfx/0fsf] nflu!$ dwo] * j6f k b]zx? a9l hg;+vof epsf cflbjf;l hghfltx? / @# j6f :jfoq If]qx? sd hg;+vof epsf cflbjf;l hghfltx?sf] gfddf k :tfljt ul/psf] 5. To;}u/L cgo s]xl cnk;+vosx? h:t} dw]zl, blnt, dlxnf nfo{ ljz]if, ;dfg / cgo clwsf/x?sf] k :tfj ul/psf] 5. g]kfndf e]befj / ;LdfGtLs/0fsf] cgtosf nflu ;+3Lotf Ps k efjsf/l pkfosf]?kdf klxrfg / k j{4g ug{ yflnpsf] 5. tyflk, hg;+vofsf] lx;fan] sd Go"g /x]sf cnk;+vos ;d'xx?dfem clxn]sf] k :tfljt ;+3Lotfsf] k f?kn] pglx?nfo{ yk jl~rt / ;LdfGts[t t ug]{ xf]o{g egg] cfz+sf JofKt /x]sf] kfo{g5. s[t1tf cnk;+vos clwsf/ ;+/If0f / k j{4gdf nfu]sf gllt lgdf{tf, /fhgllts ;fdflhs cu'jf, cg';gwfgstf{, tyf ceof;stf{x?nfo{ ;+3Lo d'n'sx?df epsf cg'ej tyf ;kmn ceof;x? cfbfgk bfg ug{ Ps cgt{lqmoftds :yfg pknaw u/fpg] p2]zosf ;fy ;kf]6{ g]kfnn] r}q!@!# ut], @)^* df sf7df8f}+df ;+3Lo k 0ffnLdf cnk;+vos clwsf/ ;+/If0f ljifos ;+j}wflgs uf]nd]r ;Dd]ng cfof]hgf u of]. pqm ;Dd]ngdf dw];l, cf]=al=;l=, d'l:nd, ckfëtf epsf JolQm, of}lgs cnk;+vos, cflbjf;l hghflt, dlxnf, blnt, eflifs cnk;+vos, wfld{s cnk;+vos, cnk;+vos tyf ;LdfGts[t ;d'bfosf] xs clwsf/ ;+/If0f ;ldltsf ;efklt, ljlegg /fhgllts bnsf ;ef;b\x?, gful/s ;dfhsf k ltlglw tyf kqsf/x?sf] pkl:ylt /x]sf] lyof]. of] k ltj]bg pqm uf]nd]n ;Dd]ngdf k :t't ul/psf sfo{kqx?sf] ;+slnt?k xf]. xfdl cfzf ub{5f}+ ls of] k ltj]bg ;+3Lo ;Gbe{df cnk;+vos clwsf/ ;+/If0fsf r"gf}tlx? tyf ;+3Lo k 0ffnLn] cnk;+vos clwsf/ ;+/If0f ug{ pknaw u/fpg] pko'qm t/lsfx?sf] af/]df a'emg ;3fp k'/ofpg]5. uf]nd]rsf] ;kmn ;+of]hg tyf ;xhls/0f / o; k ltj]bgsf] ;Dkfbg ug'{x'g] /fs]z s0f{nfo{ wgojfb lbg rfxg5'. o; k ltj]bgnfo{ g]kfnldf cg'jfb u/l ;xof]u ug]{ slkn sfkm\n]nfo{ klg wgojfb lbg rfxg5'. Pd=cf/=hL= sf lgsf]n lu/f{8 tyf sf7df8f}+ l:yt :jl; /fhb'tfjf;sf lgsf]n :6'c/lhË/sf] ;xof]u lagf pqm sfo{qmdn] d"t{?k lng ;Sb}gYof]. pxffx?nfo{ klg ljz]if wgojfb. /f]zgf v8sf, k ]d >]i7, gjlg z]v/ nufot ;kf]6{ g]kfnsf ;a} ;fylx?nfo{ pqm sfo{qmd x'g' cl3 tyf bf}/fgdf k'/ofpsf] ;xof]usf] nflu wgojfb lbg rfxg5'. o; k ltj]bgnfo{ l8hfo{g ug'{x'g] ljsf; clwsf/l nfo{ wgojfb 5. cgtdf sfo{kq k :tf]tfx? tyf ;xefulx?sf] of]ubfgnfo{ ;d]t ;/fxgf ug]{ kb{5. k ltlqmof tyf k[i7kf]if0fnfo{ ;w}+ g} ;/fxgf ul/psf] 5. u+uf k ;fb ;fx cwoif

Constitutional Roundtable On the Minority Rights Protection in Federal System 25-26 March, 2012 Kathmandu, Nepal 1. Background Nepal is a country of minorities: 100 caste and ethnic groups, 8 religious groups and more than 92 linguistic groups. Of the 100 caste/ethnic groups, there are only six caste/ethnic groups that exceed 5% or more of the total national population. A total of just 18 caste/ethnic groups have a population size greater than 1%. There are 32 caste/ethnic groups with a population of over 1000,000 or over 0.5% each, of the national population. A large number of caste/ethnic groups are very small: 53 groups have a population size fewer than 50,000, with a further 19 groups smaller than 5,000. Four caste/ethnic groups are the most advantaged and dominant in Nepal and rest of the caste and ethnic groups can be divided into the most disadvantaged and disadvantaged groups. Dalits 1 have been exploited for centuries and have suffered from worst forms of discrimination. Madheshis 2 are excluded from all government sectors and have been treated as 'outsiders' and 'second class' citizens in their own country. Women, although more than half of the population, have always been discriminated and exploited from patriarchic society. The 'one nation, one language' policy of the state has led to the extinction of some of the languages in Nepal. Non-Hindus have seldom faced religious tension; however, the Hindunization of the country has prevented equal status for non- Hindus in Nepal. Indigenous nationalities 3 have always sacrificed to the aspirations of ruling elites but are forced to live in severe marginalization. The current proposals made by the State Restructuring and State Power Distribution Committee under the Constituent Assembly do have encouraging provisions for indigenous nationalities (IN) such as naming 8 out of 14 provinces after sizable INs, and 23 autonomous areas for non-sizable INs. Some other minority groups will have special, equal and other rights. In Nepal, federalism is promoted as a way to bring an end to discrimination and marginalization. However, there is a widespread fear among large number of non-sizable minority groups that the proposed design of federalism and its provisions could add another layer of marginalization and exclusion. 2. The roundtable SUPPORT Nepal organized a Constitutional Roundtable on the Minority Rights Protection in Federal System in Kathmandu, on 25-26 March, 2012. Supported by Minority Rights Group International (MRG), UK, the European Commission and the Swiss Federal Department of Foreign Affairs (FDFA), the overall objective of the roundtable was to provide an interactive space for policy makers, leaders, researchers and practitioners working in the field of protecting and promoting minority rights in federal countries to share experiences and successful approaches of minority rights protection in federalism. 1 So-called "untouchable" caste group in Nepal as defined by the Hindu Verna System. 2 A multi-lingual (non-nepali), multi-ethnic, and non-hill community living in Terai in Nepal identified mainly on the basis of their distinct culture, tradition and social values. 3 Indigenous nationalities are defined as ethnic group with distinct tradition, cultural identities, social structures and non/written history. 58 ethnic groups are enlisted as Indigenous Nationalities in Nepal. 1 Minority Rights Protection in Federal System

;+3Lo k 0ffnLdf cnk;+vos clwsf/sf] ;+/If0f ;+j}wflgs uf]nd]r ;Dd]ng!@!# r}q, @)^*, sf7df8f}+, g]kfn!= k[i7e"dl g]kfn cnk;+vosx?sf] b]z xf]. oxff!)) egbf a9l hft hflt ;d'xx?, * egbf a9l wfld{s ;d'xx? tyf (@ egbf a9l eflifs ;d'xx?sf] a;f]af; /x]sf] 5.!)) dwo] ^ hft hflt ;d'xx?sf] hg;+vof dfq g]kfnsf] s"n hg;+vofdf k lt hft hflt % k ltzt egbf a9l /x]sf] 5.!* j6f hft hfltx?sf] hg;+vof dfq g]kfnsf] s"n hg;+vofsf]! k ltzt egbf dfly /x]sf] 5. #@ hft hfltx?sf] hg;+vof!)),))) egbf dfly 5 eg\] %# hft hfltsf] hg;+vof %),))) egbf sd 5. To:t}!( hft hfltsf] hg;+vof t %,))) egbf sd g} /x]sf] 5. g]kfnsf hft hfltx? dwo] rf/ hft hfltx?sf] cj:yf cgo egbf k e"tjzfnl / pggt /x]sf] 5. cgo hft hfltx?nfo{ ;'ljwf jl~rt / clt ;'ljwf jl~rt ;d'xsf]?kdf aff8g ;lsg5. blntx?! ztfablcf}+ b]lv zf]lift epsf / lgs[i6 lsl;dsf e]befjaf6 k efljt epsf 5g\. dw]zlx? @ nfo{ /fhosf] ;+ogqx?af6 jl~rt kfl/psf] / cfkmg} d'n"sdf æaflx/lofæ / æbf]>f] bhf{æ sf] gful/ssf]?kdf lje]b ul/b} cfpsf] 5. dlxnfx?sf] hg;+vof g]kfnsf] s"n hg;+vofsf] cfwfegbf a9l eptfklg pglx?nfo{ lkt[;qftds jftfj/0fn] ubf{ ;w}+ g} lje]b / zf]if0fsf] lzsf/ agg' k/]sf] 5. æps b]z, Ps efiffæ sf] glltn] g]kfnsf] cgo efiffx? k efljt epsf 5g\ eg] s]xl efiffx? nf]k x'g] cj:yfdf k'u]sf 5g\. u}/ lxgb'x?nfo{ cf}krfl/s?kdf wfld{s tgfjsf] cj:yf ef]ug' gk/]tfklg d'n'snfo{ lxgb's/0fsf] ceof;n] u}/ lxgb'x?nfo{ ;dfgtfsf] cg"e'lt lbg eg]\ slxno} ;s]g. ;Qf;fdGtx?sf] cfsf+iffsf] kl/k"ltsf lgldt cflbjf;l hghfltx? # n] ;w} g}+ alnbfg lbg'kg]{ sf/0fn] pglx? ;LdfGts[t ep/ affrg'kg]{ cj:yf ;[hgf epsf] 5. ;+ljwfg ;ef cgtu{tsf] /fho k"g{;+/rgf tyf /fhozlqmsf] aff8kmff8 ;ldltsf] k :tfjn] cflbjf;l hghfltx?sf] nflu s]xl pt;fxk b Joj:Yffx? u/]sf] 5. pbfx/0fsf] nflu!$ dwo] * j6f k b]zx? a9l hg;+vof epsf cflbjf;l hghfltx? / @# j6f :jfoq If]qx? sd hg;+vof epsf cflbjf;l hghfltx?sf] gfddf k :tfljt ul/psf] 5. To;}u/L cgo s]xl cnk;+vosx?nfo{ ljz]if, ;dfg / cgo clwsf/x?sf] k :tfj ul/psf] 5. g]kfndf e]befj / ;LdfGtLs/0fsf] cgtosf nflu ;+3Lotf Ps k efjsf/l pkfosf]?kdf klxrfg / k j{4g ug{ yflnpsf] 5. tyflk, hg;+vofsf] lx;fan] sd Go"g /x]sf cnk;+vos ;d'xx?dfem clxn]sf] k :tfljt ;+3Lotfsf] k f?kn] pglx?nfo{ yk jl~rt / ;LdfGs[t t ug]{ xf]o{g egg] cfz+sf JofKt /x]sf] kfo{g5. @= uf]nd]r ;Dd]ng ;kf]6{ g]kfnn] r}q!@!#, @)^* df sf7df8f}+df ;+3Lo k 0ffnLdf cnk;+vos clwsf/ ;+/If0f ljifos ;+j}wflgs uf]nd]r ;Dd]ng cfof]hgf u/of]. Minority Rights Group International (MRG), UK, the European Commission and the Swiss Federal Department of Foreign Affairs (FDFA) sf] ;xof]udf b'o{ lbg] uf]nd]r ;Dd]ngsf] d'vo p2]zo cnk;+vos clwsf/ ;+/If0f / k j{4gdf nfu]sf gllt lgdf{tf, /fhgllts tyf ;fdflhs cu'jf, cg';gwfgstf{, tyf ceof;stf{x?nfo{ ;+3Lo d'n'sx?df epsf cg'ej tyf ;kmn ceof;x? cfbfgk bfg ug{ Ps cgt{lqmoftds :yfg pknaw u/fpg] /x]sf] lyof].! lxgb' j0f{ Joj:Yffn] tyfslyt æc5"tæ sf]?kdf kl/eflift ul/psf] hft ;d'x. @ g]kfnsf] t/fo{df a:b} cfpsf ax"eflifs -u}/ g]kfnl efiff_, ax" hftlo tyf u}/ kxf8l ;d'bfosf ;d'xx? hf] cfkmgf] ljlzi6 ;F:s[lt, k/dk/f tyf ;fdflhs dfgotfx?sf] cfwf/df lrlgg5g\. # ljlzi6 k/dk/f, ;Ff:s[lts klxrfg, ;fdflhs ;+/rgf tyf c lnlvt O{ltxf; epsf hftlo ;d'xx?. g]kfndf %* j6f hftlo ;d'xx?nfo{ cflbjf;l hghflt eg]/ ;"rls[t ul/psf] 5. ;+3Lo ;+/rgfdf cnk;+vos clwsf/sf] ;+/If0f!

As expected the roundtable provided an interactive forum to explore ways for more effective and sustainable safeguard mechanisms so that minorities will be neither marginalized at the center nor at the level of federal units. The roundtable also provided exposure to the challenges and mitigation approaches related to minority rights during transitional periods, providing a bigger picture of protection mechanisms and instruments of incorporating wider minority groups' concern and rights under the federalization process in Nepal. The roundtable focused on three major elements: constitutional provisions for protecting minority groups, secondary legislation, laws and policies of protecting minority groups, appropriate approaches to 'benefitting all' in federal systems with a focus on dispersed and smaller groups. 3. Topics for discussion 1. Mechanisms, e.g. electoral system, bi-cameral parliament, commissions, for participation of minority communities in a federal country and issues around the practical implementation of these mechanisms; 2. Balancing the interests of 'new' and 'old' minorities and majorities in particular at various levels of state (provinces, local and autonomous areas); 3. Distribution of powers between federal, provincial, local levels and autonomous areas in respect to minorities; 4. Affirmative action measures to address the situation of economic, social, cultural and political marginalization of minorities, taking into account the inequality within minorities; and 5. Strategies for winning support from authorities and dominant communities at all state levels for participation and minority rights measures. 2 Minority Rights Protection in Federal System

o; uf]nd]rn] ;+3Lo ;+/rgfx?df cnk;+vosx? yk ;LdfGts[t gxf]pg\ eggsf nflu k efjsf/l tyf arfp ;+ogqsf] pkfox? vf]hg cj;/ k bfg u/]sf] lyof]. cnk;+vos clwsf/ ;+/If0fsf ;+ogqx?sf] a[xt t:jl/ ;lxt g]kfndf ;+3Los/0fsf] k lqmofdf cnk;+vos ;d'xx?sf rf;f] / clwsf/x?nfo{ ;dflxt ug{ cfjzos ;+ogqx?sf] Joj:Yff h:tf dxtjk'0f{ s'/fx?nfo{ Wofgdf /fvg' cfjzos 5. ;+qmd0fsfndf cnk;+vos clwsf/sf nflu ljbdfg r"gf}tl tyf ;f]sf] Joj:yfkgsf nflu pko'qm lgsf;x? vf]tngdf ;d]t o; uf]nd]rn] ;xof]u u/]sf] ljzjf; ul/psf] 5. o; uf]nd]r ;Dd]ngn] d'vo?kdf tlg j6f ttjx?dfly cfkmgf] Wofg s]lgb t u/]sf] lyof]m s_ cnk;+vos ;d'xx?sf] ;+/If0fsf nflu ;+j}wflgs Joj:yfx?, v_ cnk;+vos ;d'xx?sf] ;+/If0fsf nflu cfjzos sfg"g tyf glltx?, / u_ ;+3Lo k 0ffnLdf æ;a}nfo{ kmfo{bf k'ug]æ vfnsf pko'qm k4ltx? / To;df klg 5l/P/ /x]sf tyf ;fgf hg;flîos ;d'xx?nfo{ ;d]t kmfo{bf k"ug] vfnsf k4ltx?. #= 5nkmnsf ljifoj:t'x?m!= ;+3Lo Joj:Yffdf cnk;+vos ;d'bfox?sf] ;xefultfsf] nflu pko'qm ;+ogqx?. pbfx/0fsf nflu lgjf{rg k 0ffnL, b"o{ ;bgftds Joj:yf, cfof]ux?. o:tf ;+ogqx?sf] Jojxfl/s sfof{gjogsf] qmddf b]vf kg]{ ;jfnx? d'2fx?. @= vf;u/l /fhosf] ljlegg txx?df -k fgt, :yfglo tyf :jfoq If]qx?_ ægoffæ tyf æk"/fgf]æ cnk;+vosx? tyf k e"tjzfnl ax";+vosx?sf] O{R5f cfsf+iffsf] ;Gt'ng. #= ;+3, k fgt, :yfglo tx tyf :jfoq If]qx?lar cnk;+vossf] b[[li6sf]0fn] clwsf/x?sf] aff8kmff8. $= cnk;+vosx?sf] cfly{s, ;fdflhs, ;ff:s[lts tyf /fhgllts ;LdfGtLs/0fsf] cj:yfnfo{ ;Daf]wg ug{ ;sf/ftds lje]bsf pkfox?. To;leq klg cnk;+vosleqsf cnk;+vosx?sf] lxtnfo{ ;d]t Wofgdf /fvg]. %= /fhosf] ;a} txx?df cnk;+vosx?sf] ;xefultf tyf clwsf/sf ;+ogqx?sf] sfof{gjogsf nflu k zf;g tyf k e"tjzfnl ;d'bfox?sf] ;xof]u k flktsf nflu cfjzos /0fgLltx?. ;+3Lo ;+/rgfdf cnk;+vos clwsf/sf] ;+/If0f @

Ethnic Assertion for Political Space in Federal Nepal To bring an end to discrimination based on class, caste/ethnic, language, gender, culture, religion and region by eliminating the centralized and unitary form of the state, the state shall be made inclusive and restructured into a progressive, democratic federal system (The Interim Constitution of Nepal 2007). 1. Background Krishna Hachhethu 4 Nepal is a home of 101 caste/ethnic groups, 91 linguistic and 9 religious entities. Based on caste, ethnic, regional, cultural and linguistic cleavages, Nepali population can be broadly classified into three major groups: Pahadi (hill people) and Madheshi (plains people); Jat (caste group) and Janajati (ethnic group); and high caste and low caste Hindus (within Jat). As a consequence of historical process of national integration into the fold of Pahadi high caste culture - monarchy, Hinduism and Nepali language were effectively enforced as the three key pillars of Nepali nationalism - diversity was translated into inequality among different social groups (see annex 1 and 2). But since the beginning of the 21st century, the socio-political landscape of Nepal appears something different from its past portrait. Nepal has experienced major political and societal transformation in the 21st century. It is moving towards a participatory and inclusive democracy. This has become possible because of major developments taking place recently. Some epochal events include: an unprecedented mass uprising of April 2006 (known as Jan Andolan II) in which three to four million people in a country of 23 million population participated directly; the end of the decade long civil war (1996-2005) between the security forces of the state and the guerillas of the Communist Party of Nepal, Maoist or CPN- Maoist, followed by mainstreaming of the former insurgents into a system of peaceful multiparty competition; the April 2008 elections to the Constituent Assembly (CA), followed by negotiations among the competing ideologies and interests with a task of framing a new constitution in spirit with the goals of Jan Andolan II; and demise of monarchy - an institution that had long been considered as a "symbol and substance of national unity and nationalism of Nepal" - in May 2008. Moreover, Nepal has witnessed the rise of ethnicity - surfaced with ethnic and regional movements in the post- 1990 democratic space; backed up by international conventions and communities; and geared up by ethnicisation of politics and politicization of ethnicity - which eventually brought a paradigm shift in Nepal's nation-building project from that of assimilation into the fold of dominant hill caste's culture to accommodation of social diversity. The impact of rise of ethnic and regional sub-nationalism is well manifested in some remarkable decisions made by the Nepali state in the post- Jan Andolan II period. 4 Professor of political science and a faculty member of Central Department of Political Science, Tribhuvan University, Kathmandu Nepal. He is author of one dozen books, including Party Building in Nepal (2002), Nepal in Transition (2008), State Building in Nepal (2009), and has credit of publishing more than five dozen articles in books and journals published in Nepal and abroad. He is former member of High Level Commission of State Restructuring of Nepal. Prof. Hachhethu is country coordinator of a South Asia Democracy Study network. He has experiences of working with international organizations on several subjects like democracy, political party, governance, election, state restructuring etc. 3 Minority Rights Protection in Federal System

;+3Lo g]kfndf hft hfltsf] /fhgllts :yfg k f= s[i0f xf5]y+" $ jul{o, hftlo, eflifs, n}lª\us, ;f+:s[lts, wfld{s / If]qLo e]befjsf] cgto ug{ /fhosf] s]gb Ls[t / PsfTds 9fFrfsf] cgto u/l /fhosf] ;dfj]zl, nf]stflgqs ;+3Lo k 0ffnL ;lxtsf] cu ufdl k'gm;+/rgf ul/g]5. -g]kfnsf] cgtl/d ;+ljwfg, @)^#_!= k[i7e"dl g]kfn!)! hft hflt, (! efiffefifl / ( wfld{s ;d'bfo epsf] Ps ljljwtfo'qm b]z xf]. hft, wd{, If]q, ;F:s[lt tyf efiffsf cfwf/df g]kfnl hgtfnfo{ k d'v tlg ;d"xdf ljefhg ug{ ;lsg5.!= kxf8l / dw]zl, @= hflt / hghflt tyf #= dflynnf] / tnnf] hftsf lxgb'. ljljw ;fdflhs klxrfgnfo{ kxf8l prr hfltsf] ;F:s[ltdf ;dflxt ug]{ sfd nfdf] ;dob]lv /fhosf] cu'jfo{df eof], To;n] ubf{ ljlegg ;fdflhs ;d"xalr cfly{s c;dfgtf / /fhgllts lje]b eof] -x]g'{xf];\ cg';"rl! / @_. oblk @!cf}+ ztfjblsf] k f/de;fu} g]kfnsf] ;fdflhs /fhgllts :j?k eg] ablng yfnof]. g]kfnn] @! cf}+ zblsf] k f/de;fu} k d'v /fhgllts tyf ;fdflhs?kfgt/0fsf] cg'ej klg ;Fufn]sf] 5. d'n's ;xeful / ;dfj]zl nf]stgqtkm{ k j]z ul/;s]sf] 5. xfn} epsf dxtjk"0f{ /fhgllts ljsf;sf sf/0f of] ;Dej epsf] xf]. @)^@ ^# sf] hgcfgbf]ng -h;df @ s/f]8 #) nfv hg;+vofsf] d'n'sdf #) b]lv $) nfv hgtf ;8sdf cf]ln{psf lyp_, dfcf]jfbl åf/f ;~rflnt Ps bzs nfdf] hgo'4ú -@)%# b]lv @)^@ ;Dd_ sf] cgto, @)^$ df ;DkGg ;+ljwfg;efsf] lgjf{rg, ;dfj]zl ;+ljwfg;efsf] u7g, u0ftgqsf] :yfkgf cflb pnn]vglo 36gfx? x'g\. To;f] t () sf] bzsb]lv g} g]kfndf hghflt cfgbf]ng k efjsf/l x'g yfnof]. o;n] b]znfo{ ;dfj]zl] nf]stgqsf] af6f]df hfg] kl/l:ylt ptkgg u of]. o;df cgt/f{li6«o ;d'bfosf] klg ;xfg'e"lt / ;dy{g /Xof]. o; cltl/qm /fhglltsf] hghftls/0f tyf hghfltnfo{ /fhgltls/0f ug]{ sfo{n] klg dnhn u of]. kl/0ffd:j?k kxf8l prrhflt / ;+:sf/df cfwfl/t /fi6«jfbsf] kl/of]hgfú egbf km/s cfofd k s6 x'g yfnof]. hgcfgbf]ng efu @ kl5 /fhoaf6 epsf dxtjk"0f{ lg0f{ox? kl/jt{gsf sf];]9'+ëf aggk'u]. egf}+, ol lg0f{ox?df hghflt cfgbf]ng tyf pk /fi6«jfbsf] pbosf] k efj k of]. goff kl/jt{gsf b[i6fgtx? $ s]lgb o /fhgllts zf:q ljefu, lqe'jg ljzjljbfno, sf7df8f}+, g]kfndf /fhgllt zf:qsf k fwofks. g]kfndf bn lgdf{)f - @))@_, ;+qmd0fdf g]kfn -@))*_, g]kfndf /fho lgdf{0f -@))(_ nufot Ps bh{g egbf a9l k':tsx?sf] ;Dkfbg ul/;s]sf, g]kfn / aflx/sf k':ts tyf klqsfx?df s/la % bh{g egbf a9l n]v /rgfx? k sflzt eo{;s]sf]. ttsfnlg /fho k"g;+/rgf ;'emfj prr :t/lo cfof]usf ;b:o. ljlegg /fli6«o tyf cgt/fli6«o ;+3 ;+:yfx?df k hftgq, /fhgllts bn, zf;g, lgjf{rg, /fho k'g;+/rgf cflb h:tf ljifox?df sfd u/]sf] cg'ej. ;+3Lo ;+/rgfdf cnk;+vos clwsf/sf] ;+/If0f #

= Declaration of Nepal as a secular state; = Recognition of multilanguage policy; = Reservation and affirmative actions to the excluded groups = Inclusive representation of social groups in the CA in proportion to the size of their own population (see annex 3); and = Establishment of federal system by a new constitution to be made by the CA. Following the above stated developments, the State Restructuring Committee (SRC), a thematic committee of the Constituent Assembly (CA) which was assigned to craft a federal Nepal, has adopted identity as primary factor and capability as secondary, while recommending 14 provinces for federal Nepal. The identity is shaped by a combination of five aspects: (1) caste/ethnicity (2) language (3) culture (4) geographical/territorial continuity and (5) historicity. Capability is an aggregation of four variables: (1) economic interrelations (2) infrastructural development (3) natural resources and (4) administrative accessibility. The proposed 14 provinces are: Limbuwan, Kirat, Sherpa, Mithila- Bhojpur-Koch Madhes, Tamsaling, Sunkoshi, Newa, Narayani, Tamuwan, Magarat, Lumbini-Awad- Tharuwan, Karnali, Khaptad and Jadan. The High Level State Restructuring Commission (HLSRC) - a Commission assigned to review on the SRC's proposal of federal design for Nepal - recommended 10 territorial provinces omitting Sherpa, Jadan, and Sunkoshi provinces and merging Karnali and Khaptad into one province. In fact, federalism offers a political space at middle level between the centre and the local. This paper is organized with two propositions. One, in a multicultural countries like Nepal, ethnicity obviously gets prominence in crafting federal structure. Two, ethnic content will be allowed to the extent that it does not supersede democratic principle of equality of individual citizens. Democratic federalism in multicultural countries tends to seek a balance between individual rights of citizen (central notion of liberal democracy) and collective rights of social groups (main thrust of inclusive democracy). With reference to comparative experiences of multicultural federal countries of the world, this paper analysis the proposed federal structure for Nepal. It entertains both ethnic perspective and political proposal. 2. CONCEPTUAL FRAMEWORK Theoretically speaking and empirically proven fact is that federalism is attracted for three major reasons. One, it gives ethnicity a overwhelming importance which means federalism serves as a means of accommodating ethnic diversity and minimizing conflicts (Turton, 2006; Suberu, 2006; Roy, 2006; Ilago et al, 2006; Blendenbacher, 2003; Thurer, 2006). Two, it celebrates variety and creates unity out of diversity (Sadik, 2003; Fleiner et al, 2006) hence it reduces likelihood of secession (Kymlicka, 2006; Montes, 2006). While speaking about India, Bharagava states, " that the democratic and linguistic federalism of India has managed to combine legitimate claims of national unity with equally legitimate claims of the political recognition of relatively distinct cultural groups" (2006: 93). Three, it offers consensus democracy against majoritarian democracy (Montes, 2006: 161). In addition, federalism allows losers at national political level to be winner at the sub-national or local level (Haysom, 2003: 227). 4 Minority Rights Protection in Federal System

g]kfn wd{lg/k]if d'n's 3f]if0ff ax'eflifs glltsf] cjndag alx:s[t ;d'bfosf nflu cf/if0f tyf ;sf/ftds lje]b hg;+vofsf] cg'kftdf ;+ljwfg;efdf ;fdflhs ;d"xsf] ;dfj]zl k ltlglwtj -cg';"rl # x]g'{xf];\_ ;+ljwfg;efaf6 lgdf{0f x'g] goff ;+ljwfgåf/f ;+3Lo k4ltsf] :yfkgf. dfly pnn]v ul/psf ljsf; / kl/jt{gsf k[i7e"lddf ;+ljwfg;efsf] ljifout /fho k'gm;+/rgf tyf /fho zlqmsf] aff8kmff8 ;ldlt -h;n] g]kfndf ;+3Lotfsf] :j?k sf]g]{ lhdd]jf/l kfpsf] lyof]_ n] klxrfgnfo{ k fylds cfwf/ / IfdtfnfO{ bf]; f] cfwf/ agfp/ ;+3Lo g]kfnsf nflu!$ k b]z x'g'kg]{ l;kmfl/; u of]. klxrfg eggfn] kffr kifsf] ;+of]hg lyof]!= hflt hghflt, @= efiff, #= ;+:s[lt, $= ef}uf]lns If]qut lg/gt/tf tyf %= P]ltxfl;s lg/gt/tf. o;}u/l Ifdtfleq klg rf/ cfwf/ /x]sf 5g\ cfly{s cgt;{dagw, @= k"jf{wf/ ljsf;, #= k fs[lts ; f]t ;fwg / $= k zf;lgs kx'fr. ;ldltn] k :tfj u/]sf!$ k b]zdf lnda'jfg, ls/fft, z]kf{, ldlynf ef]hk'/f sf]r dw]z, tfd;flnª, ;'gsf]zl, g]jf, gf/fo0fl, td'jfg, du/ft, n'ldagl cjw y?jfg, s0ff{nl, vkt8 / h8fg /x]sf 5g\. ;ldltsf] l;kmfl/; k'g/jnf]sg ug{ prr:t/lo /fho k'gm;+/rgf cfof]u klg u7g ul/of], o;n]!) k b]zsf] l;kmfl/; u of]. o;n] k b]zsf] ;+/rgfdf ;a}h;f] ;ldlts} kblrgx ckgfptfklg s]xl k b]zsf ;DaGwdf eg] ;+zf]lwt ;'emfj lbof]. cfof]un] z]kf{, h8fg / ;'gsf]zl k b]z x6fof] / s0ff{nl / vkt8nfo{ Ps} 7fpFdf uflelbof]. jf:tjdf, ;+3Lotfn] s]gb / :yfglo :t/sf] alrdf csf]{ Ps /fhgllts ;+/rgf k bfg ub{5. of] n]v b'o{ k :tfjgfdf cfwfl/t 5. Ps, g]kfnh:tf] ax";ff:s[lts / ax"hftlo /fhosf] nflu ;+/rgf ug]{ ;+3Lo vfsfdf :jefjtm klxrfgn] k fyldstf kfpf5. bf]; f], klxrfgsf] cfwf/nfo{ k fyldstf lb+bf gful/s ;dfgtfsf] nf]stflgqs clwsf/ s'l07t x'g'x'gg. ax";ff:s[lts d'n'sdf nf]stflgqs ;+3Lotf gful/ssf] JolQmut clwsf/ -pbf/ nf]stgqsf] s]gb Lo cfwf/_ / ;fdflhs ;d"xsf] ;femf clwsf/ -;dfj]zl nf]stgqsf] d"n rfxgf_ lar ;Gt'ng sfod ug'{ cfjzos 5. o; n]vn] ljzjsf ax";ff:s[lts ;+3Lo d'n'sx?sf] ;Gbe{sf ;fy g]kfnsf] k fb]lzs ;+/rgfsf ;DaGwdf ljzn]if0f u/]sf] 5. o;n] hfltut cjwf/0ff / /fhgllts k :tfj b'j}nfo{ plqs} dxtj lbpsf] 5. @= cjwf/0ffut ;+/rgf ;}4flGts tyf cg'ejl;4 tyo s] xf] eg] ;+3Lotfsf] cfjzostfsf tlg sf/0fx? 5g\. Ps, hft hfltsf] klxrfgnfo{ /fhglltdf plrt :yfg k bfg ug]{, hfltut ljljwtfsf] Joj:yfkg ug{ / o;;fu ;DalGwt ågå Go"gLs/0f ug{ - 6'6{g @)^#, ;'a]? @)^#, /f]o @)^#, Onfuf] / ;fylx? @)^#, An]08]gafr/ @)^), y'/]n @)^#_ b'o{, ;+3Lotfn] ljljwtfdf Pstf l;h{gf ug'{sf ;fy} ljljwtfsf] ;Ddfg klg ub{5 -;flbs @)^), k\mnlg/ / ;fylx? @)^#_. k5f}6]kg 36fpg jf d'n'ssf] ;di6lut ljsf; ug{ klg ;+3Lotf cfjzos 5 -lsdlnsf @)^#, df]g6]; @)^#_. ef/tsf ;DaGwdf s'/f ubf{ ====ef/tsf] nf]stflgqs tyf eflifs ;+3Lotf ljlegg ;f+:s[lts ;d'bfosf] klxrfg / pglx?alrsf] ;DaGw :yflkt ug{] / ;dfg j}wflgs cj;/ k bfg ug]{ /fli6«o Pstfsf] cfwf/ ag]sf] 5Ú egg] efu{jsf] k b]z;dagwl l6kk0fl :d/0flo x'gcfpf5 -@)^#M (#_. tlg, o;n] ax';+vofdf cfwfl/t nf]stgqsf sdhf]/llj?4 ;xdltsf] nf]stgqsf] af6f] b]vfpf5 -df]g6];, @)^)M!^!_. o; cltl/qm, ;+3Lotfn] s]gb df k/flht epsfnfo{ To;eGbf tnnf] lgsfo -k b]z_ df ljhol agg] cj;/ k bfg ub{5 -x];d, @)^)M @@&_. ;+3Lo ;+/rgfdf cnk;+vos clwsf/sf] ;+/If0f $

Countries with heterogeneous society adopt federalism as the major instrument of accommodating ethnic diversity and minimizing conflicts. Even smaller countries like Austria, Bosnia-Herzegovina, Comoros, St Kits and Nevis etc have adopted federalism in the process of addressing caste/ethnic, regional, lingual and religious diversity. Several unitary countries have transformed into federal system with the objective of strengthening national unity and regional indivisibility by addressing issues relating to caste/ethnicity, regional, lingual and religious diversity and inequality (Friedrich 1968; Duchacek 1970). Federalism offers an environment for 'living in diversity with unity'. Diversity in unity is the starting point of different theories of federalism (Fleiner, 2006:61). In responding to the rise of ethnic violence all over the world - Out of 110 major armed conflicts recorded in a period between 1989 and 1999, 103 took place within existing states, mostly focused around identity issues (Quoted in Reilly 2001: 2) - international conferences on federalism, held in 1995 in Switzerland and in 1999 in Canada, acknowledged federalism as a system capable to contribute for "peaceful settlement of minority and ethno-political conflicts", "to ensure autonomy and diversity with political balance of power", and for "peaceful reconciliation of unity and diversity within a political system" (Bachler, 1997; Blindenbacher, 2003). Perhaps federal countries of the world - particularly those who become federal by holding together or by disaggregation - might face a dilemma, at the formative phase, in setting the criteria of constituting federal units. Generally, ethnicity (based on language or tribe or culture or religion or region) was taken as the only one basis in constituting federal units in most multiethnic states, i.e. Switzerland (Mischler, 2006; Fleiner 2006), Belgium (Poirier, 2006), Spain (Requeijo, 2006), India (Bhargava, 2006), Pakistan (Khan, 2001), Iraq (Kumar et al, 2010), Ethiopia (Fiseha, 2006; Galadima, 2010), Nigeria (Suberu, 2006) etc. All these countries are not labeled as ethnic federal which mean constituting federal units on the basis of ethnicity is not sufficient conditions for making ethnic federalism. Canada (Knopff et al, 2005) and South Africa (Steytler, 2005) are among those federal nations which adopted ethnicity as the main criteria in making some sub-national units of their respective countries. There are many countries, i.e. USA, Canada, Mexico, Venezuela, Australia etc known as tri-federalism for the arrangement of political space to indigenous nationalities of their respective countries (Shrestha, 2011). 3. ETHNIC PERSPECTIVE The post-1990 democracy period stands witness ethnic upsurge (Bhattachan, 2000; Hachhethu, 2003; Hangen, 2010). Nepal is a part of global phenomenon of ethnic upheavals accompanying with the third wave of democracy. Nepal is still exempted from ethnic war. Inter-ethnic relation in Nepal largely appears none-antagonistic, so, some see it as harmonious and free of violence (Sharma, 1997; Dahal, 1995; Pradhan, 2002). This is but not substantiated by micro level studies, - i.e. Caplan's research in east hill (1970) Gaige's study on Madhesh (1975) etc. Thus, "The ethnic harmony may have been exaggerated" (Gellener, 1997: 6) and, to the extreme, it is "blatantly manufactured myth" (Bhattachan, 1995: 125). Over the time, ethnic relation has been changing rapidly towards the greater degree of discord, conflict and tension since the rise of ethnic movements in aftermath of the restoration of democracy in 1990. On emergence of ethnicity and regionalism as a dominant part of the Nepali polity, a foreign expert on Nepali society and politics observed "If the period 1960 to 1990 was one of nation-building, the 17 years since then has been a time of ethnicity-building" (Gellner 2007: 1823). 5 Minority Rights Protection in Federal System

ax":j?ksf] ;dfh /x]sf] d'n'ssf nflu ;+3Lotfn] hfltut ljljwtf ;d]6\g / ågå Go"gLs/0f ug{ cf}hf/sf] sfd ub{5. cl:6«of, af]l:gof xh{uf]legf, sf]df]/;, ;]G6 ls6\; / g]le;h:tf ;fgf d'n'sn] klg ;+3Lo kblt ckgfpsf 5g\. hfltut, eflifs tyf wfld{s ljljwtf epsf d'n'sdf ;a}nfo{ ;d]6\g] oxl pks/0f xf]. klxn] PsfTds k 0ffnLdf /x]sf w/} d'n's hfltut, If]qLo, eflifs tyf wfld{s ljljwtf / c;dgtfsf ljjfb ;dfwfg ug{ ;+3Lo k 0ffnLdf?kfGtl/t epsf] 5 -lk m8l/r, @)@%, 8'rf;]s, @)@&_. ;+3Lotfn] Pstfsf ;fy ljljwtf nfo{ ;+u} ;xofqf u/fpf5ú. ;+3Lo ;+/rgf ckgfpsf b]zx? jlr kfog] ;dfg ljz]iftf eg]sf] Pstf / ljljwtf b'j}sf] ;Ddfg g} xf] -lk\mng/, @)^#M^!_. ljzjdf @)$^ b]lv @)%^ ;fn;ddsf epsf!!) ;z:q ågåx? dwo]!)# hfthfltsf] d'2fdf s]lgbt 5 -l/nnl @)%*M @_ o;n] jt{dfg o'udf hftlotfsf] dxtj emnsfpfg5. ;+3Lotfsf ljifodf @)%@ ;fndf :jl6\h/nof08df / @)%^ ;fndf Sofg8fdf epsf cgt/f{li6«o ;Dd]ngn] cnk;+vos tyf hfltut /fhgllts ågånfo{ zflgtk"0f{ ;dfwfgsf nfluú ;+3Lotf g} pko'qm Joj:yf xf] egg] lgisif{ lgsfn]. /fhgllts zlqm ;Gt'ngsf ;fy :jfoqtf tyf ljljwtfú / /fhgllts k 0ffnLleq Pstf tyf ljljwtfsf] zflgtk"0f{ d]nldnfksf nflu o; Joj:yfnfO{ pko'qm dflgpsf] xf] -Aofrn/, @)%$, AnfO08]gar/, @)^)_. To;f] t ljzjsf ;+3Lo d'n'sx? k b]z ;+/rgf ug]{ ljifodf cndnd} k/]sf b]lvg5g\. vf;u/l klxn] PsfTds k 0ffnL ckgfpsf] d'n's k b]zdf ljeflht ep/ ;+3Lo k 0ffnL cjndag ubf{ k b]zsf] u7g s'g cfwf/df ug]{ egg] ljifodf cndn epsf] kfog5 h'g :jfefljs} xf]. ;fdfgotm hfltdf cfwfl/t /x]/ -efiff jf ;d'bfo, ;+:s[lt, wd{ If]q_ clwsf+z d'n'sn] k b]z u7g u/]sf] kfog5. :jl6\h/nof08 -ld:rn/, @)^#, k\mnlg/ @)^#, a]lnhod -kf]ol/o/, @)^#_, :k]g -/]SjLhf], @)^#_ ef/t -efu{e, @)^#, kfls:tfg -vfg, @)%*_, O/fs -s'df/ P6 cn, @)^&_ Olyof]lkof -lkmh]xf, @)^#, ufnflbdf @)^&, gfoh]l/of -;'a]?, @)^#_. t/ ol ;a} d'n'ssf] ;+3LotfnfO{ hflto ;+3Lotf eg]/ cf/f]k nufofb}g cyf{t hfltut ;+3Lotfdf cfwfl/t d'n's eg]/ xf]rofofb}g. Sofg8f -gf]km / ;fylx?, @)^@_ / blif0f clk msf -l:66n/, @)^@_ o:tf pbfx/0f x'g\ h;n] s]xl k b]z u7gsf] d'vo cfwf/ ;Dk"0f{?kn] hftlotfnfo{ agfp. cd]l/sf, Sofg8f, d]ls;sf], e]g]h'pnf, c:6«]lnof nufotsf d'n'sdf cflbjf;lsf nflu /fhgllts :yfg ;'/lift ubf{ lq ;+3Lojfbsf] l;4fgt ckgfoof] ->]i7, @)^*_. #= hft hfltut cjwf/0ff @)$^ ;fndf k hftgqsf] pbo kzrft\ hft hfltsf cfjfhx? p7\g yfn]sf x''g\ -e rg, @)%&, xf5]y', @)%(, xfgh]g, @)^&_. ljzjdf nf]stgqsf] t]; f] nx/;fu} hft hfltsf] cfgbf]ng b]vf k/]sf] xf], g]kfn o;sf] ckjfb xf]og. t/ g]kfndf clxn];dd hfltut n8fo{+ eg] epsf] 5}g. g]kfndf cgt/ hftlo ;DaGwdf zq'tf gkfopsfn] sf]xl o;nfo{ tgfjd'qm / ;f}xfb{ k"0f{ ;DaGwsf?kdf lrq0f ub{5g\ -zdf{ @)%$, bfxfn @)%@, k wfg @)%(_. t/ o; lrq0fnfo{ ljljw cwoogn] ;dy{g eg] u/]sf 5}gg\ SofKnfgn] k"jl{o kxf8df u/]sf] cwoog -@)@&_, dw]zdf u]ohsf] cwoog -@)#@_ o;sf pbfx/0f x'g\. t;y{ hfltut d]nldnfknfo{ agfj6l /+u lbopsf] k i6 x'g5. u]n]g/ -@)%$, ^_ / e rg -@)%@,!@%_ sf cg';f/ of] clt/l~ht tl/sfn] agfopsf] syg dfq xf]. @)$^ ;fndf k hftgqsf] k"ga{xfnl kzrft\ h'g hftlo cfgbf]ng a9\b} uof], To;sf] c;/ cgt/ ;d'bfo ;DaGwdf b]vf kg{ yfn]sf] 5 cyf{t o;df ågå / tgfjsf] dfqf b]vf kg{ yfn]sf] 5. g]kfnl /fhglltdf hflt / If]qsf] ;Gbe{ p7]kl5 g]kfnl ;dfh / /fhglltsf Ps ljb]zl lj1sf cg';f/ @)!& ;fnb]lv @)$^ ;fn;dd /fi6«lgdf{0fn] k fwfgo kfof]] eg] To;kZrft\!& jif{sf] sfo{sfndf hflt lgdf{0fn] k wfgtf kfpsf] 5 -u]ng/ @))&,!*@#_. ;+3Lo ;+/rgfdf cnk;+vos clwsf/sf] ;+/If0f %

Nepal: Human Development Report (1998) and Unequal Citizens (2006) are two among several other scholarly works that provide an intellectual foundation for ethnic movement as these publications give an empirical and statistical evidences of inequality among the social groups of Nepal. Nepali society is largely organized in stratified hierarchical order in which Brahmin and Chhetri place at the top, Janajati in the middle and Dalit at the lowest position. The superior position of hill high castes correspondences to their better of position in human development index whereas the Janajati and Madheshi (except Newar and plains high castes respectively) fall into category of excluded and marginalized groups. Figure of hill castes Brahim/Chhetri on poverty index is much lower (19 %) than national average of 31% whereas for the rest other groups people under below poverty line is much higher. The dominant and marginalized paradigm between hill high castes and other social groups is also well reflected in distribution of political power structure of the country. The hill high castes constitute only 32 percent of the total population of the country but their dominance in the state power is 66 percent. The scenario is just the opposite as far as other groups are concerned with the exception of Newar (among Janajatis) and some high caste people from the Madhesis (Bahun, Bhumihar, Kayastha and Rajput). Against this background, the recent ethnic identity movements have increasingly been accelerated aiming to end domination of hill high castes. "The new politics of identity and recognition is seen as emancipatory and empowering of the hitherto marginalized and oppressed communities; it is the weapon of the weak, redressing past injustice; and enriches society through diversity" (Ghai, 2011: 315). Restructuring Nepali state into a federal form is not a project initiated by the state; it is rather an outcome of Janajati and Madheshi movements. These groups have, therefore, a lot of hope and expectation of getting due share in political power structure of the county under federal design. As federalism provides a political mechanism for self rule and autonomy, it is seen as a solution to the longstanding unitary, exclusionary and patrimonial characters of Nepali state (Riaz and Basu, 2010: 80; Lama, 2008: 115). The quest for federalism is significant in advancing democracy in Nepal from that of conventional plebiscite structure to inclusive governance. Federal state, by any standard, is more inclusive than unitary one. As division of power on territory basis is the core of federalism, it naturally provides greater space to the minorities in sharing of social, economic and political power of the country. Ethnic organizations and activists are obviously in favor of ethnic federalism. The search of ethnic federalism begins with claims of historical homeland. Prior to the unification of Nepal in 1768, indigenous nationalities had their own states (Bhattachan, 1995). The eastern Nepal had Limbu and Kirat states; the Kathmandu Valley had the Newa state; hills surrounding Kathmandu valley and beyond had Tamshaling tribe-land; the west Nepal had Magar state and Tamu tribe-land, and Khasan was confined to west of hill areas of Karnali river till the 12th century. The nature of states in those days existed as chiefdom or principalities rather than kingdom or modern state. Concerned ethnic organizations have sought to convert their own historical homeland into the sub-national units of the federal Nepal. Hence the picture of different provinces would as followings: Limbuwan, located in east of Arun river, west of Mechi river, north of Indian border (Sikkim and Bihar), and south of China (Tibet). It includes the present nine districts of both eastern hills and tarai: Sankhuwasabha, Taplejung, Terhathum, Panchthar, Dhankuta, Ilam, Sunsari, Morang and Jhapa (Kirat Yakthung Chumlung). 6 Minority Rights Protection in Federal System

g]kfn dfgj ljsf; k ltj]bg -@)%^_ / c;dfg gful/s -@)^#_, ol b'o{ o:tf cwoog x'g\ h;n] hghfltsf] cfgbf]ngdf af}l4s hu k bfg ub{5g\. ol cwoogn] g]kfnl ;fdfhdf ljbdfg c;dfgtfsf tyofª\s ;lxtsf ljj/0f k bfg ub{5g\. g]kfnl ;dfh c;dfgtfsf] hudf ag]sf] 5 h;df afx'g If]qL dflynnf] efudf /x]sf 5g\, hghfltx? dwod efudf eg] blntx? tnnf] txdf /x]sf 5g\. kxf8l prr hflt dfgj ljsf; ;"rsdf dflynnf] kx'fr epsf hflt dflgg5. hghflt / dw];l -g]jf/ / t/fo{sf prr hftsf dflg;_ alxis[t / ;LdfGts[t ;d"xdf kb{5g\. To;f] t!$ k ltzt afx'g / If]qLx? ul/alsf] /]vfd'lg /x]sf 5g\, h'g g]kfnlsf] cf}zt ;+Vof #! k ltztegbf!& k ltztn] sd b]lvg5. cgo hflt eg] w]/} ;+Vofdf ul/alsf] /]Vffd'lg /x]sf 5g\. d'n'ssf] /fhgllts ;+/rgfsf] ljefhgdf klg kxf8l prr hflt Pj+ cgo ;fdflhs ;d"xalr k e'tjzfnl ju{ / ;LdfGts[t ;d'bfosf] cj:yf k i6?kdf b]vg ;lsg5. kxf8l prr hfltn] d'n'ssf] s'n hg;+vofsf] s]an #@ k ltzt efu cf]u6]sf] 5 t/ /fhosf] zlqmdf pglx?sf] jr{:j ^^ k ltztsf] /x]sf] 5. cgo ;d"xx?sf] v08df eg] -hghfltdf g]jf/ / dw];sf s]xl prrf hft a fdx0f, e"dlxf/, sfo:y / /fhk't afx]s_ o;sf] l7sljk/lt cj:yf /x]sf] 5. o; lsl;dsf] kl/j]zdf jt{dfg ;dosf hfltut cfgbf]ngn] kxf8l prr hfltsf] k e'tj x6fpg] p2]zo lnpsf] b]lvg5. klxrfgsf] goff /fhglltdf ;LdfGts[t / lk5l8psf ;d'bfox?nfo{ d'qm u/fpg / ;'b[9 agfpg lgtfgt cfjzos 5. of] lga{nx?sf] xltof/ x'g]5 h;n]] e"tsfndf epsf cgofox?nfo{ ;Daf]wg u/l ;dfhnfo{ ljljwtfn] 3gLe"t agfpg] 5-3O{ @)!!M #!%_. g]kfnl ;dfhnfo{ k'gm;+/rgf u/l ;+3Lo ;+/rgfdf nfg] of]hgfsf] z'?jft /fhon] u/]sf] xf]og. of] hghflt / dw];l cfgbf]ngsf] glthf xf]. t;y{ ol ;d"xnfo{ ;+3Lo k 0ffnLdf /fhgllts cfofd k fkt x'g] / plrt lx:;]bf/l ldng] 7"nf] ck]iff /x]sf] 5. ;+3Lo k 0ffnLn] /fhgllts ljlwnfo{ :jmzf;g / :jfoqtf k bfg ug]{ epsfn] o;n] k/dk/fut ;dfhdf xnrn NofO{ lbpsf] 5 -l/ofh / jf;' @)^&M *), nfdf @)^%M!!%_. g]kfndf k/dk/fut txut hftlo ;+/rgfdf kl/jt{g NofP/ ;dfj]zl zf;g nfu" ug{sf nflu ;+3Lo k 0ffnL x'g' cfjzos b]lvg5. PsfTds k 0ffnLsf] /fhodf egbf ;+3Lo /fhodf hgtfsf] ;dfj]zltf x'g;s5. ;+3Lotfdf zlqmsf] aff8kmff8 If]qsf] cfwf/df x'g] epsfn] d'n'ssf] ;fdflhs, cfly{s / /fhgllts zlqmdf cnk;+vossf] a9l lx:;f x'g;s5. hghflt ;+3 ;+:yf / To;sf cu"jfx? :jefjtm hfltut ;+3Lotfsf] kifdf 5g\. hfltut ;+3Lotfsf] vf]hsf] ;'?jft P]ltxfl;s dft[e"ldsf] klxrfgaf6 x'g]u5{. g]kfn PsLs/0f x'g'cl3 cflbjf;l hghfltsf cf cfkm\gf /fhox? lyp -e rg, @)%@_. c7fx f}+ ztfabl;dd k"jl{o g]kfndf lnda' / ls/fftl /fho lyp, sf7df8f}+ pktosfdf g]jfm /fho lyof], pktosf j/k/ tfd;flnª /fho, klzrd g]kfndf du/ /fho / td'sf] /fho /x]sf] lyof]. s0ff{nl gblb]lv klzrd v08df v;fg hfltsf] e"efu lyof]. To; ;dodf /fhosf] ;+/rgf cfw'lgs k 0ffnLaf6 geo{ /fhf/hf}6f k yfsf cfwf/df x'g] ub{yof]. hghfltsf] clwsf/df sfo{/t ;+:yfx?n] cf cfkm\gf P]ltxfl;s e"efunfo{ ;+3Lo g]kfnsf] pk /fi6«psfo{df kl/jt{g u/fpg] rfxgf /fv]sf 5g\. o;cg';f/ ljlegg /fhosf lrq lgdgcg';f/ x'g] k :tfj ul/psf] 5M lnda'jfgm c?0f gblegbf k"j{, d]rl gblegbf klzrd, ef/tlo l;dfgf -l;lssd / laxf/_ sf] pq/ / rlg -ltaat_sf] blif0fl lbzfdf kg]{ /fho. o;df k"jl{ kxf8l / t/fo{sf ( j6f lhnnf kb{5g\m ;+v'jf;ef, tfkn]h'ë, t]x y'd, kffry/, wgs'6f, Onfd, ;'g;/l, df]/ë / emfkf -ls/fft ofsy'ë r'dn'ë_. ;+3Lo ;+/rgfdf cnk;+vos clwsf/sf] ;+/If0f ^

Kirat, located in territories know as walo kirat, magh kirat and palo kirat that spreads into the present 16 districts of Mechi, Koshi and Sagarmatha zones. Tamshaling, located in Dudhkosi and Kamala rivers in the east, Budhigandaki and Narayani rivers in the west, East-West Highway including Chitwan in the south, and Tibet Autonomous Region of China in the north. The entire territory within these borders, except the Newar majority area in the Kathmandu Valley, is the Tamsaling province. (Tamsaling United Struggle). Hence Tamshling province includes 12 districts: Rasuwa, Nuwakot, Dhading, Chitwan, Makwanpur, Kavrepalanchowk, Sindhupalchowk, Sindhuli, Dolakha and Ramechhap districts, and about half of Okhaldhunga and Solukhumbu.. Newa, located in territories known as the Nepal Mandala as stated in the Nepal Mahatmya (United Newa Struggle Committee). Hence, the borders of the Newa province stretches up to Dudhkosi in the east, Trishuli in the west, Tibet Autonomous Region of China in the north and Thori (adjacent to the border with India) in the south. This includes all or major parts of nine districts: Kathmandu, Lalitpur, Bhaktapur, Makwanpur, Dhading, Nuwakot, Kavre, Sindhupalchok and Dolakha. Tamuwan, located in between Budhi Gandaki in the east, Kali Gandaki in the west, China's Tibet autonomous region in the north and Indian borders in the south. Magarat, located at Gandaki in the east, Karnali in the west, China's Tibet autonomous region in the north and Indian borders in the south. Henceforth, the following 16 districts fall in Magarat province: Palpa, Syangja, Gulmi, Argakhanchi, Baglung, Rolpa, Rukum, Salyan, Myagdi, Dang, Surkhet, Dolpa, Pyuthan, Tanahun, Nawalparasi and Parbat. Tharuwan, located in all 20 tarai districts (Jhapa, Morang, Sunsari, Saptari, Siraha, Dhunsha, Mahotari, Sarlahi, Rautahat, Bara, Parsa, Chitwan, Nawalparasi, Rupandehi, Kapilbastu, Banke, Dang, Berdia, Kailali and Kanchanpur).where Tharus are the first settlers, claimed by the Tharu activists. Alternative proposal is that Tharuwan is a land located in flatlands west from Banke that includes five tarai districts, Banke, Bardiya, Kailali, Kanchanpur and Dang districts. Jadan, located in highland of Karnali and so known as upper Karnali. Khaptad, located in hills from west of Karnali river. Madhes, claimed all 20 tarai districts (Jhapa, Morang, Sunsari, Saptari, Siraha, Dhunsha, Mahotari, Sarlahi, Rautahat, Bara, Parsa, Chitwan, Nawalparasi, Rupandehi, Kapilbastu, Banke, Dang, Berdia, Kailali and Kanchanpur) on the basis of ecology rather than history. Sunkoshi and Narayani don't exist as separate provinces from the perspective of claims of historical homeland. The main reason in laying foremost priority on historical basis by the ethnic organizations is for the establishment of ethnic identity. The recognition as indigenous peoples, who have lived in specific locality of current Nepal's geographical borders from time immemorial, is entwined with the wish to gain self-rule, autonomy and preferential rights. Adibashi is equated with entitlement of special privileges or benefits from reservation, affirmative actions, preferential rights etc. Demand of ethnic autonomy precedes the declaration of Nepal as a federal state. Ethnic/regional autonomous province with the right to self-determination was heard loudly during the Janajati and Madhesh movements. Janajatis have frequently refereed international conventions like ILO 169 and the UN Declaration on the Rights of Indigenous Nationalities 2007 while claiming right of endogenous people on jal, jangal and jamin (water, forest and land). 7 Minority Rights Protection in Federal System

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The major janajati groups are more attracted to a provision of the SRC: political preferential right to the targeted group for the position of the chief executive of province and the head of the executive of autonomous area for the first two terms. This is but taken out from the frame by the HLSRC. Federalism means - what the masses of Janajati and Madheshi understand or what they want to convey - is a system that blends 'share rule' at centre and 'self rule' at province. As they are thinking the disaggregation of boundary of federal units on the basis of ethnicity, the present disadvantage groups - Madheshi and Janajati in particular - is hoping to get double benefit: domination in their respective province and a sharing the power of the central government/administration. For them, the minimal definition of autonomy and right to self determination is making 'strong province', otherwise, some interpret it to the extent of right to secede. Apart of delineation of province in ethnic line, the whole set of ethnic federalism is in the mind of ethnic activists. Ethnic activists are encouraged by following factors: 1. by Janajatis and Madheshis. The quest for identity politics obviously demands the creation of expanded political space for historically disadvantaged groups. In this regard, Nepal's federalism project provides an additional arena to the previously excluded groups to acquire greater political/administrative power and influence. 2. The quest for power by ethnic and regional movements eventually led to the change in the national goal of the Nepali state in the post-jana Andolan II. The new Nepal has now set inclusive democracy as one of its priority goals, along with restructuring the state. 3. Inclusive Nepali democracy is currently understood as: (1) an end of the hill high caste domination; (2) formal inclusion of those who have long been excluded from the power structure of the country and (3) increased opportunities for the historically excluded communities, especially the indigenous, the Madhesi and Dalits. So, to change the unitary system is tantamount to bringing a profound change in the existing power equation among these social groups. Federalism is potentially an effective means to promote inclusive democracy. 4. The present political equation is also in favor of the pro-federalist, Janajati and Madheshi. Unlike the hill high castes domination in the parliament in the 1990s, the Janajati and Madheshi constitute 62% of the present 601 CA members and, furthermore, constitute 70% of the 43 members CSRDSP. The federalist influence in the CA has produced the clear national preference of identity as the basis for constituting federal units. All ethnic claims cannot be translated into the provision of the constitution. Because, political parties have to hear voices coming from other sections of society. There is rise of Bahun/Chhetri ethnicity whose manifested objective is recognition of hill Bahun and Chhetri as also adibashi (indigenous) people. The real objective of the Bahun/Chhetri movements is to make the Nepali federalism nonethnic in its attributes and thereby upholding their dominant position in the federal Nepal. So, hill castes people want delineation of the provinces on non-ethnic line which means creating provinces vertically by combining mountain, hill and tarai areas and preserving the existing administrative territory and demographic composition. For them, capability matters more than identity for constituting federal units. 8 Minority Rights Protection in Federal System

k d'v hghflt ;d"xx? ;+ljwfg;ef cgt/{utsf] /fho k'gm;+/rgf ;ldlt sf] k :tfjk lt a9l cfslif{t b]lvpsf 5g\. o;df k b]zsf] sfo{sf/l k d'v kbdf nlift ;d"xsf] lgldt /fhgllts cu flwsf/ klxnf] @ sfo{sfnsf nflu k :tfj u/]sf] 5. o:tf] Joj:yf :jfoq If]qsf nflu klg u/]sf] 5. ;+3Lotf eggfn] s]gb df ;femf zf;g / /fhodf :jfoq zf;g Joj:yfsf] ;+of]hg egg] a'lemg5. ;+3Lo PsfO{x?sf] l;dfgfnfo{ hftlo cfwf/df ljefhg ug]{ ;f]rn] ljz]if?kdf hghflt Pj+ dw]zlx?nfo{ bf]xf]/f] kmfobf ldng]5. pglx?nfo{ cfkm\gf If]qdf k e'tj sfod ug{ ;Ifd agfpgsf ;fy} s]]gb Lo ;/sf/df pglx?sf] lx:;f ;'/lift x'g5. pglx?sf lgldt :jfoq /fho tyf cftdlg0f{o eggfn] ;an k b]z egg] cy{ nfu5 eg] cgosf lgldt ljv08gsf] clwsf/. k b]znfo{ hftlotfsf] cfwf/df u7g ug]{ JofVof u/]kzrft\ hghflt sfo{stf{x? hfltut ;+3Lotfsf] s'/f rnfpg yfn]sf 5g\. pglx?nfo{ k f]t;fxg ug]{ b]xfosf ljifox? /x]sf 5g\M!= hghflt tyf dw]zlx?m of] t hghflt Pj+ dw]zlx?sf] xfn}sf] hfltut / If]qLo clwsf/df cfwfl/t cfgbf]ngsf] pkh xf]. /fhglltdf klxrfgsf] o; ofqfdf P]ltxfl;s sfnb]lv g} lk5l8psfx?sf nflu lj:t[t /fhgllts :yfg ;[hgf ug'{k5{. lk5l8psf ;d"xnfo{ /fhgllts / k zf;gdf k efjk"0f{ :yfg k bfg ug{ g]kfndf ;+3Lotf Joj:yf nfu' ul/g' h?/l 5. @= hftlotf tyf If]qLotfsf cfwf/df zlqm k fkt ug]{ ;+3ifM {n] cgttm hgcfgbf]ng @ kzrft\ g]kfnlsf] /fli6«o nio g} kl/jt{g epsf] 5. goff g]kfndf ;dfj]zl u0ftgq k flkt x'g] u/l /fhosf] k'gm;+/rgf ug]{ s'/f k fyldstfsf] ljifo ag]sf] 5. #= g]kfndf ;dfj]zl nf]stgqsf] cy{m -s_ kxf8l prr hfltsf] afx'notfsf] cgto -v_ d'n'ssf] d"nwf/df s}of}+ jif{b]lv lk5l8psf ju{x?sf] ;dfj]zls/0f / -u_ P]ltxfl;s sfnb]lv g} cj;/af6 jl~rt u/fopsf ;d'bfox? ljz]iftm cflbjf;l, dw]zl tyf blntx?sf nflu df}sf. PsfTds Joj:yf cgt u/l ;fdflhs Gofo k bfg ug{ xfn ljbdfg c;gt'lnt zlqm Joj:yfdf kl/jt{g Nofpg lgtfgt cfjzos 5. jf:tjdf ;dfj]zl u0ftgqnfo{ k f]t;fxg ug]{ Joj:yf eg]sf] ;+3Lotf g} xf]. $= xfn g]kfnsf] /fhgllts cfofd klg ;+3Lotf, hghflt / dw]zlsf] kifdf /x]sf] 5M @)$^ ;fndf h:tf] cfh ;+;b\df kxf8l prr hftsf]] jr{:j 5}g. ;+ljwfg ;efsf] ^)! ;b:olo Joj:yfdf hghflt / dw]zl] ^@ k ltzt 5. cem $# ;b:olo /fho k'gm;+/rgf tyf /fhosf] aff8kmff8 ;ldltdf &) k ltzt k ltgllwtj klg lxhf]sf jlx:s[t ;d'bfos} /x]sf] 5. ;+ljwfg ;efdf ;+3Lo PsfO{ u7gsf lgldt klxrfg ul/g] cfwf/sf] k fyldstfdf ;dfj]zl kif cufl8 5. ;Dk"0f{ hfltut dfunfo{ ;+ljwfgdf pnn]v ug'{ Jojxfl/s x'fb}g. lsgls b]zjofkl?kdf o:tf dfusf] cf]o/f] nflu/x]sf] x'g5. /fhgllts kf6l{n] ;dfhsf cgo kifaf6 cfpsf cfjfhsf] klg ;'g'jfo{ ug'{kg]{ x'g5. clxn] afx'g If]qLnfO{ klg cflbjf;ldf /flvg'kg]{ dfu cfpsf] 5. o;sf] cy{ xf] afx"g If]qLn] d'n'sdf hftlotfdf cfwfl/t Joj:yf cfpg glbo{ /fho ;lqmdf cfkm\gf] jr{:j lg/gt/ sfod /fvg] rfnafhl. t;y{ kxf8l prr hfltsf dflg;n] k b]zsf] Joj:yf hftlotfsf] cfwf/df gu/l lxdfn, kxf8 / t/fo{ If]qdf xfn /x]sf] k zf;lgs ljefhg sfod /fvg] k of; ul//x]sf 5g\. pglx?sf nflu ;+3Lo PsfO{sf] lgdf{0fdf klxrfgegbf Ifdtf 7"nf] epsf] 5. ;+3Lo ;+/rgfdf cnk;+vos clwsf/sf] ;+/If0f *

Ethnic conflict between the hill castes and Janajati and Madheshi is distinct over the issue of federal design in Nepal. Solutions of many problems lay on the proposal of the State Restructuring and State Power Distribution Committee (SRSPDC), a thematic committee of the CA which is assigned to craft federal Nepal. The Committee does not go to the extent of ethnic federalism though it entertains a number of ethnic contents, i.e. ethnic name of provinces, autonomous regions for tiny Janajatis, reinvention of cultural territory while delineating provinces' boundary. Both the SRSPDC and the State Restructuring Recommendation Highlevel Commission (SRRHC) adopted a principle that one particular targeted caste/ethnic group should be either the majority or the largest group in each of the proposed provinces. For this purpose, the boundaries of some districts are redemarcated. Creation of ethnic territory, of course, is pre-requisite of ethnic federalism. It is but not a sufficient condition. Comparative experiences of ethnic federal countries, e.g. Belgium, Ethiopia, Nigeria, and Bosnia-Herzegovina, show that it should entail some other attributes, i.e. (1) constitute of territorial and or non-territorial units (Belgium) solely on ethnic basis (2) decentralized federalism with autonomy and rights to self determination (to the extent of right to secede in Ethiopia) (3) ethnicization of central political structure or shared rule on the basis of ethnic representation rather than territorial representation, and (d) preferential rights to 'sons of the soil'. So far the proposal of the SRSPDC and SRRHC is concerned; they adopted two bases (identity and capability) at least in principle despite placing identity as the main criteria. The SRSPDC's proposal is close to centralized federalism vesting a lot of power to central government, i.e. residuary power, revenue collection, dissolution of provincial government and legislature. The Committee for Determination of Legislature recommends territorial representation of provinces for the Upper Chamber. Only for the Lower House of national legislature and unicameral legislature of provinces, ethnic representation is ensured but confining it to the PR component of the mixed electoral system. Distribution of representation under the PR is based on proportion to size of population of caste/ethnic groups. So far ethnic preference rights is concerned, the SRSPDC's proposed an agradhikar to the targeted ethnic group to the chief executive post of province for the first two tenures is exception, it was but rejected by the SRRHC. Both the SRSPDC and SRRHC did not provide constitutional arrangement for discrimination against any groups, whether they are dominant or deprived in the present power structure of the country. For instance, the right to self-determination, limited in a way which will not allow secession, is granted to indigenous groups, indigenous Janajati and Madhesis. These words (indigenous groups, indigenous Janajati and Madhesis) cover almost all the communities or groups of Nepal. The SRRHC's suggestion to omit other indigenous from groups entitled to right to self determinations is a subject that needs to review. A first right on natural resource is provided not only to indigenous Janajati but also to the local community. Along with local language (a mother tongue of the targeted ethnic group), Nepali (mother tongue of hill castes) is retained as a medium of education and official language at sub-national and local level. 9 Minority Rights Protection in Federal System

kxf8l hflt tyf hghflt / dw]zlalr goff g]kfnsf] ;+3Lo k 0ffnLsf] ;+/rgfsf ;DaGwdf Ps} k sf/sf] b[li6sf]0f 5}g. ;+ljwfg ;efsf] ;+3Lo g]kfn lgdf{0fsf nflu agfopsf] Ps ;ldltn] lbpsf] k :tfjdf o:tf ljlegg ;d:ofsf ;dfwfgx? /x]sf 5g\. s}of}+ hfltut ljifox?, h:t} k b]znfo{ hftsf cfwf/df gfdfs/0f, ;fgf hghfltsf lgldt :jfoq If]q / k b]zsf ;LdfÍgdf nlift hflt cg"s'n agfpg] Joj:yf u/]tf klg of] ;ldlt hfltut ;+3Lotf;Dd eg] k'ug;s]sf] b]lv+b}g. hfltut ;+3Lotfdf uo;s]sf /fi6«x? a]lnhod, Olycf]lkof, gfoh]l/of / af]l:gof xh{uf]legfsf] cg'ej x]g}{ xf] eg] hftlo /fho aggsf] nflu cgo w]/} kifx? cfjzos b]lvg5g\. h:t}m -s_ s]jn hftlotfsf cfwf/df ;+3Lo PsfO{sf] lgdf{0f, -v_ :jfoqtf ;lxtsf] ljs]lgb t ;+3Lotf / cftdlg0f{osf] clwsf/ -Olycf]lkofdf ljv08gsf] clwsf/sf] c+z ag]sf] ljifo_, -u_ s]gb Lo /fhgllts ;+/rgfdf If]qsf] cfwf/df gep/ hftsf cfwf/df k ltlglwtj x'g] / -3_ e"dlk'qú nfo{ k fyldstfsf] clwsf/. hxff;dd /fho k"g{;+/rgf tyf /fho zlqmsf] aff8kmff8 ;ldlt / /fho k"g{;+/rgf ;'emfj prr:t/lo cfof]un] k :t't u/]sf] ;'emfjsf] s'/f /x]sf] 5, ;}4flGts txdf klxrfg / Ifdtf b'j}nfo{ cfwf/ agfpsf 5g\. ol b'o{ cfwf/df klg klxrfgnfo{ d"n cfwf/ dflgpsf] 5. ;ldltsf] k :tfj s]gb Ls[t ;+3Lotfsf] lgs6 5 h;df d"n zlqm k b]znfo{ lbopsf] 5}g. cjlzi6 clwsf/, /fh:j ;+sng, k b]zsf] ;/sf/ / Joj:yflksfsf] lj36g ug]{ clwsf/ s]gb Lo ;/sf/df /xg] k :tfj ul/psf] 5. Joj:yflksf lgwf{/0f ;ldltn] dflynnf] ;efsf nflu k b]zx?sf] ef}uf]lns k ltlglwtjsf nflu l;kmfl/; u/]sf] 5. /fli6«o Joj:Yfflksfsf] tnnf]f ;ef tyf k b]zx?sf bf]>f] ;bgsf nflu dfq hftlo k ltlglwtjsf] Joj:yf u/]sf] 5. t/ o;nfo{ ldl>t lgjf{rg k 0ffnLsf] ;dfg'kflts k ltlglwtjleq l;dlt /fv]sf] 5. hft hftl ;d'xx?sf] hg;+vofsf] cg'kftdf ;dfg'kflts k ltlglwtjnfo{ cfwfl/t ul/psf] 5. hfltut clwsf/sf] s'/fdf ;ldlt / cfof]usf legg l;kmfl/; /x]sf 5g\. k b]zsf] k d'v sfo{sf/l kbdf ;ldltn] u/]sf] b'o{ jif{sf] sfo{{sfn;dd cu flwsf/ /xg] k :tfjnfo{ cfof]unn] :JfLsf/ u/]sf] 5}g. cflbjf;l hghflt / dw]zlx?nfo{ cftdlg0f{osf] clwsf/ lbopsf] 5 t/ of] clwsf/ d'n's v08lt ug]{ ;Ldf;Ddsf nflu xf]og eg]/ k i6 kfl/psf] 5. cflbjf;l, cflbjf;l hghflt / dw]zlh:tf zjbfjnln] g]kfnsf ;Dk"0f{ ju{ / ;d'bfonfo{ ;d]6\5g\. cgo cflbjf;l ;d"xnfo{ cftdlg0f{osf] clwsf/af6 jl~rt ug]{u/l cfof]un] lbpsf] ;'emfj k'g/fjnf]sg x'gk5{. k fs[lts ; f]tdf klxnf] clwsf/ cflbjf;l hghfltnfo{ dfq gep/ :yfglo ;d'bfonfo{ klg k bfg ul/psf] 5. :yfglo efiff -nlift ;d"xsf] dft[ efiff_ sf] ;fydf g]kfnl efiff -kxf8l hftx?sf] efiff_ nfo{ klg lziff tyf k zf;lgs efiffsf]?kdf k fb]lzs tyf :yfglo :t/df k of]u ul/g'kg]{ ;'emfj lbopsf] 5. ;+3Lo ;+/rgfdf cnk;+vos clwsf/sf] ;+/If0f (

5. CONCLUSION In short, the proposed federal structure is closer to the principles and characteristics of non-ethnic rather than ethnic federalism. The main aspect of the state restructuring is the institutionalization of federal system. Federalism will gather momentum and maturity in due course of time. The main issue at the moment, however, is how to strengthen the structural aspect of federalism. But the main problem is that the major political parties and their leaders do not appear to be fully committed to federal system. In other words, federal system is a reluctant choice for them because there are contextual reasons behind Nepal's adoption of federal system. If, on the one hand, the federalism born in the context of ethnic and Madhes movement is considered a better medium of resolving the social exclusion that has existed for a long time, on the other, it seeks to strike a political balance through social pluralism and diversity. Certainly, this will affect the social, economic and political dominance of the high hill caste people. But, the leaders of political parties are also from the same social group, whose group interest is at risk from federalism. The problem will resolve provided the political parties and dominant groups gracefully realizes that the main purpose for traveling towards federalism is to address the problem of exclusion. Similarly, the Janajatis and Madheshis should also think over how to gain ownership of hill high castes - a group constituting 38 percent of the population of the country - on Nepali federalism under designing. 10 Minority Rights Protection in Federal System

$= lgisif{ ;du df egg'kbf{, k :tfljt ;+3Lotfsf] ;+/rgf ;}4flGts?kdf hfltutegbf klg u}/hfltut /x]sf] kfog5. /fho k'gm;++/rgfsf] d"ne"t p2]zo ;+3Lo Joj:yfnfO{ ;+:yfut agfpg' xf]. ;+3Lotfn] ;do;fu} ult / kl/ksjtf xfl;n ug]{5. clxn]sf] ;dodf dxtjk"0f{ s'/f ;+3Lo ;+/rgfnfo{ s;/l lgdf{0f ug]{ egg] g} xf]. o;sf nflu k d'v /fhgllts kf6l{ / ltgsf g]tfdf ;+3Lotfk lt ;sf/ftds ;f]r gagg' g} 7"nf] r'gf}tl ;flat epsf] 5. pglx? ;+3Lotf Joj:yf s/sfkd} /f]lh/x]sf 5g\. o;sf k5fl8 ljlegg ;Gbe{x? hf]l8psf 5g\. Psflt/ ztfablcf}+b]lv rlncfpsf] ;fdflhs jr{:jsf] cj:yf x6fpg hghflt / dw]zl cfgbf]ngn] ;+3Lo Joj:yfsf] k j4{g u/]sf] 5 eg] csf]{lt/ o;n] /fhgllts Joj:yfnfO{ ;fdflhs ax'njfb / ljljwtfåf/f emsemsfpsf] 5. jf:tjdf k :tfljt k'gm;+/rgfn] ;fdflhs, cfly{s / /fhgllts If]qdf kxf8l hfltsf] cflwktonfo{ c;/ ug]{5. /fhgllts kf6l{sf g]tfx? :jo+ klg o;} hfltdf kg]{ epsfn] ;+3Lotfsf sf/0f cfk\mgf] ;d"xnfo{ c;/kg]{ b]v]/ lxrlsrfx6sf ;fy plepsf 5g\. /fhgllts g]tf / lk5l8psf ;d"x Ps cfk;df ldn]/ ;+3Lotftkm{ pgd'v epdf alx:s/0fdf k/]sf ;d'bfosf] ;d:of ;dfwfg x'g]5. ;fy} hghflt / dw]zlx?n]] s;/l kxf8l hflt, hf] hg;+vofsf] #* k ltzt kl/df0fdf /x]sf] 5, sf] lxt / :jfy{nfo{ ;Daf]wg ug{ klg plqs} cfjzos 5. ;+3Lo ;+/rgfdf cnk;+vos clwsf/sf] ;+/If0f!)

Annex 1: Human Development by Caste and Ethnicity, 2006 Dominant Groups Marginal Groups Bahun Chhetri Newar Madhesi Janajati Dalit Nepal 1 Life Expectancy 68.1 60.6 68.0 61.6 62.9 61.0 63.7 2 Adult Literacy Rate % 69.9 58.4 68.2 42.3 51.7 38.0 52.4 3 Means Years of Schooling 5.4 3.7 4.7 2.4 3.0 1.7 3.2 4 Per Capita PPP Income US$ 2395 1736 3097 1094 1405 977 1597 5 Life Expectancy Index 0.718 0.594 0.717 0.610 0.632 0.601 0.645 6 Educational Attainment Index 0.586 0.471 0.558 0.335 0.410 0.292 0.421 7 Income Index 0.5301 0.4763 0.5730 0.3993 0.4410 0.3804 0.4624 8 Human Development Index 0.612 0.514 0.616 0.448 0.494 0.424 0.509 9 Ration to HDI Nepal = 100 120.1 100.8 120.9 88.0 97.1 88.3 100.0 Source: UNDP/Nepal.2009. Human Development Report 2009. Kathmandu: UNDP/Nepal. Annex 2: Integrated National Index of Governance, 1999 Dominant Groups Marginalized Groups Bahun/ Newar Madhesi Janajati Dalit Other Total Chhetri 1 Court 77.0 13.6 7.6 j.7 0 0 235 2 Constitutional Bodies 56.0 24.0 12.0 k.8 0 0 25 3 Cabinet 62.5 9.4 15.6 12.5 0 0 32 4 Parliament 60.0 7.6 17.4 13.6 1.5 0 265 5 Public Administration 77.6 17.6 3.7 j.2 0 0 245 6 Party Leadership 58.8 10.9 15.8 15.2 0 0 165 7 Leadership: Local Elected Bodies 55.5 15.7 16.2 12.0 0 0 191 8 Leadership: Commerce and Industry 16.7 47.6 35.7 0 0 0 42 9 Leadership: Educational Arena 77.3 11.3 7.2 k.1 1 1 97 10 Leadership: Cultural Arena 69.1 17.9 0 4.9 0 0 123 11 Science/Technology 58.1 29.0 9.7 l.2 0 0 62 12 Civil Society Leadership 75.9 14.8 7.4 j.9 0 0 54 Total 66.5 15.2 11.2 7.1 0.3 1 Population % 31.6 5.6 30.9 22.2 8.7 1 Difference With Population % +34.9 +9.6-19.7-15.1-8.4-1 Source: Govinda Neupane, Nepalko Jatiya Prasana [Question of Caste/Ethnicity in Nepal] (Kathmandu: Centre for Development Studies, 2000). Annex 3: Caste/Ethnic Representation in Parliament in Past and CA at Present Caste/ethnicity Population (%) House of Representatives (%) of 205 seats CA 1991 1994 1999 No % Hill high castes 30.8 56 63 60 200 33.3 Hill ethnic 28.5 24 18 20 159 26.5 Madheshi caste 14.8 9 11 14 123 20.4 Madheshi ethnic 8.7 9 7 5 53 8.8 Muslim 4.3 2 1 1 18 l.0 Dalit 12.9 0.5 - - 48 7.9 Total 601 100 Women 50 3 3 6 197 33.77 11 Minority Rights Protection in Federal System

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Changing Context of Dalits in Nepal Madan P. Pariyar 5 1. Background Nepal is at a crucial stage in history. The decade-long armed conflict (experienced from 1996 to 2006), together with the popular movement of 1990 (Jan Andolan I), the popular uprising of April 2006 (Jan Andolan II which continued for 19 days from April 6 to April 24), the civil unrest witnessed in Terai-Madhesh, and various other movements of ethnic/indigenous nationalities, Dalits and others have brought enormous change to the country. Following the revival of the dissolved House of Representatives on 24 April 2006, and the Comprehensive Peace Agreement reached between the Seven Party Alliance-led government and the Communist Party of Nepal (Maoist) on 21 November 2006, an Interim Constitution was promulgated on 15 January 2007. As per the Interim Constitution, the highly awaited election of the Constituent Assembly (CA) was accomplished on 10 April 2008. The Constituent Assembly, a classic example of inclusiveness in the history of Nepal, convened for the first time on 28 May 2008, and in its first sitting itself, declared Nepal a Federal Democratic Republic by abolishing the centuries-old institution of the monarchy. Nepal has, thus, changed from a centralized, unitary State governed by various autocratic regimes (Shah Dynasty, Rana Regime, Panchayat regime) to a federal democratic republic. The CA is in the process of writing a New Constitution. This is an enormous opportunity: an opportunity for the citizens of Nepal to jointly create a new vision for Nepal, and to build a common future. The Nepali citizens, particularly those who remained exploited, discriminated, marginalized, and socially excluded, have ingrained great hopes and aspirations at this New Constitution. Among them is a community which has historically endured the brunt of being the most neglected second grade citizen. This community has for centuries suffered from humiliation, atrocities and inhuman conduct by the so-called upper caste people. This community is no else but the Dalits of Nepal. 2. Understandings about "Dalits" The term 'Dalit' is used extensively in different reports/studies, deliberations and day-to-day dialects; yet there seems to be differing understandings about its definition. The literal meaning of Dalit in Nepali dictionary is the person who is suppressed. 5 A Dalit intellectual of Nepal, Dr. Pariyar has over three decades of national and international professional work experience in varied sectors of development, and was associated with various national and international government and non-government organizations at different capacities. Dr. Pariyar was appointed as the Chairperson of the State Restructuring Recommendation High Level Commission by the Government of Nepal. Dr. Pariyar is the Member of the Prime Minister Economic Advisory Council, and the Member of Social Inclusion Research Fund. Dr. Pariyar was the founding member and first President of the National Dalit Intellectuals Academy Nepal. He has several papers, reports and publications to his credit. 12 Minority Rights Protection in Federal System

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In the context of South Asia, Dalit is a common term used to address the culturally, economically and socially marginalized people or community, whereas in the context of Nepal, generally the word Dalit means a community or a person who suffers from tortures of caste discrimination. The proposed Bill on Dalits forwarded by National Dalit Commission for approval in the parliament has defined the term 'Dalit' as those communities who by virtue of atrocities of caste-based discrimination and untouchability, are most backward in social, economic, educational, political and religious fields, and are deprived of human dignity and social justice. The Nepal Human Development Report (UNDP 2004) has used the term Dalit to designate those communities who in practice continue to be treated as Pani Nachalne, Chhoi Chhito Halnu Parne (groups or castes from whom water is not accepted, and whose touch requires sprinkling of water by the so-called high caste communities). Overall, the term Dalit refers to the former untouchables in Nepal. It is a collective political self-identity constructed by Dalit activists - first in India and then more recently in Nepal - as a means of rejecting stigmatized identities such as "achhut", "sana jat", "talla jat", and "niche jat" given to them by so-called "high castes". It is a political identity formed on the basis of shared common historical experiences of being untouchable. For the purpose of this paper, Dalits are communities that: (i) have suffered from atrocities of caste-based discrimination, and (ii) in practice continue to be treated as untouchables by the so-called high-caste communities. 3. Who are Dalits? Dalits, as per government statistics, constitute about 14% of Nepal's population. Several studies, however, reflect that the population of Dalits in Nepal is 20% and even more 6. As per National Dalit Commission, there are altogether 26 caste groups, broadly categorized as Hill Dalits and Madheshi Dalits. They are: Hill Dalit 1. Gandharba (Gaine) 2. Pariyar (Damai, Dargee, Suchikar, Nagarche, Dholi, Hudke) 3. Badi 4. Bishwokarma (Kami, Lohar, Sunar, Od, Chunara, Parki, Tamata) 5. Sarki (Mijar, Charmakar, Bhool) 6. Pode (Deula, Pujari, Jalari) 7. Chyame (Kuchikar, Chyamkhal) Terai Dalit 1. Kalar 2. Kakaihiya 3. Kori 4. Khatik 5. Khatwe (Mandal, Khang) 6. Chamar (Ram, Mochi, Harijan, Ravidas) 7. Chidimar 8. Dom (Marik) 9. Tatma (Tanti, Das) 10. Dushadh (Paswan, Hajara) 11. Dhobi (Rajak Hindu) 12. Pasi 13. Bantar 14. Mushahar 15. Mester (Halkhor) 16. Sarbhang (Sarbariya) 17. Natuwa 18. Dhandi 19. Dharikar/Dhankar 6 The claim for a higher percentage is based on the facts that some Dalits use surname same as the other castes, some Dalits have tended to hide their castes during the census enumeration, and some Dalits are enumerated under Newar, Bhote Dalits have not been reported separately. 13 Minority Rights Protection in Federal System

blif0f Pl;ofdf blnt zabn] ;f+:s[lts, cfly{s / ;fdflhs?kdf ;LdfGts[t JolQm jf ;d'bfonfo{ a'efmfpf5. g]kfnsf] ;Gbe{df o; zabn] JolQm jf ;d'bfo hf] hftlo e]befjsf] lzsf/ epsf 5g\ ltglx?nfo{ hgfpf5. /fli6«o blnt cfof]un] blntx?sf lgldt ;+ljwfgdf ;dfj]z ul/of];\ egl k :tfj u/]sf] k f?kn] blnt zabnfo{ JofVof u/]sf] 5. ;f] JofVofcg';f/ tl ;d'bfo hf] hftlo lje]b / c5'tsf] ctofrf/af6 kll8t eo{ ;fdflhs, cfly{s, z}lifs, /fhgllts tyf wfld{s If]qdf lk5l8psf 5g\ / dfgjlo cf]xbf / ;fdflhs Gofoaf6 jl~rt /x]sf 5g\, pglx?nfo{ blnt eg]/ lrlgg5. g]kfn dfgj ljsf; l/kf]6{ -o'pgl8lk @)^!_ sf cg';f/ blnt zabn] To:tf] ;d'bfosf JolQm h;nfo{ ;dfhsf pknnf] hft elgg]x?n]] kfgl grng] ju{ egl 5'6\ofPsf 5g\ / 5f]Ol56f] xfng'kg]{ rng rnfpsf 5g\, nfo{ hgfpf5. ;+lifktdf g]kfndf tyfslyt c5'tx?nfo{ blnt elgg] ul/g5. klxn] ef/tdf / xfn g]kfndf klg blnt cfgbf]ngn] ;fd"lxs /fhgllts :jklxrfgsf] lgdf{0f u/l pknnf] ju{ egf}bfx?n] lbpsf snísf klxrfg h:t} c5't, ;fgf hft, tnnf hft / lgr hftcflb lj?4 cfgbf]ng rnfo /x]sf 5g\, alxis/0flj?4 ;+ul7t epsf 5g\. c5't x'gfsf] P]ltxfl;s ;femf cg'ejsf cfwf/df /fhgllts klxrfg lgdf{0f ul//x]sf 5g\. o; cfn]vdf blntn] tl ;d'bfonfo{ hgfpf5 h;n], -!_ hftsf] cfwf/df x'g] lje]b / ctofrf/sf] lzsf/ x'g' k/]sf] 5 / -@_ pknnf] hft egf}bfx?åf/f c5't egl ckdfgsf] Jojxf/ ;xg'k/]sf] 5. #= sf] x'g\ t blnt < ;/sf/l tyofícg';f/ blntx?n] g]kfnsf] s'n hg;+vofsf]!$ k ltzt k ltlglwtj ub{5g\. s}of}+ cwoogn] g]kfndf blntx?sf] ;+Vof @) k ltzt jf ;f]egbf klg a9l /x]sf] b]vfpsf 5g\^. blntsf] ;+Vof hgu0fgfn] b]vfpegbf clws 5 egg] bfjl ug]{x?sf] cfwf/ s] /x]sf] 5 eg] ;dfhdf ckx]lnt x'g'gk/f];\ eg]/ sltko blntn] cgo y/ n]vfpg] u/]sf 5g\. To:t} g]jf/, ef]6]h:tf hft hgfpg] y/ /fvg] blntx? klg 5g\. o;n] ubf{ y/ x]/]/ dfq blntsf] ;+Vof tf]sg ;lsgg. /fli6«o blnt cfof]usf cg';f/ kxf8l blnt / dw]zl blnt u/l g]kfndf hddf @^ hftsf ;d'bfo /x]sf 5g\. tl b]xfocg';f/ 5g\ kxf8l blnt ü ugbe{ -ufog]_ ü kl/of/ -bdfo{, bhl{, ;'lrsf/, gu/r], wf]nl, x'8\s] _ ü afbl ü ljzjsdf{ -sfdl, nf]xf/, ;'gf/, cf]8, r'gf/f, kfsl{, 6df6f_ ü ;fsl{ -ldhf/, rd{sf/, e'n_ ü kf]8] -b]pnf, k'hf/l, hnf/l _ ü Rofd] -s'lrsf/, Rofdvfn _ dw]l; blnt ü snf/ ü ss}lxof ü sf]/l ü vflts ü vtj] -d08n, vfª_ ü rdf/ -/fd, df]rl, xl/hg, /ljbf;_ ü lrl8df/ ü 8f]d -dfl/s_ ü ttdf -tgtl, bf;_ ü b'zfw -kf;jfg, xhf/f_ ü wf]al -/hs lxgb'_ ü kf;l ü agt/ ü d';x/ ü ü ü ü ü d]:6/ -xnvf]/_ ;/efª\u -;a{l/of_ g6'jf wfg8l wl/sf/ jf wgsf/ ^ blntsf] ;+Vof hgu0fgfn] b]vfpegbf clws 5 egg] bfjl ug]{x?sf] cfwf/ s] /x]sf] 5 eg] ;dfhdf ckx]lnt x'g'gk/f];\ eg]/ sltko blntn] cgo y/ n]vfpg] u/]sf 5g\. To:t} g]jf/, ef]6]h:tf hft hgfpg] y/ /fvg] blntx? klg 5g\. o;n] ubf{ y/ x]/]/ dfq blntsf] ;+Vof tf]sg ;lsgg. ;+3Lo ;+/rgfdf cnk;+vos clwsf/sf] ;+/If0f!#

4. Historical Context of Caste-Based Discrimination Caste division and practice of untouchability have been social realities for centuries in Nepal. The Dalits have been facing social discrimination, hatred and humiliation throughout history. These communities have not only been discriminated in the Hindu caste hierarchy, but they have also been suppressed by the State, and are virtually treated as second grade citizen. The account of the suppression of Dalit communities by the State dates back to the medieval period in the 14 th century when King Jayasthiti Malla (1324-1338) formalized the caste system in Kathmandu Valley by dividing the Newar (indigenous) population into 64 caste groups, each with different functional and occupational categories. These castes were not based on descent or ascription but on the nature of work itself. Later, due to the process of Hinduization in the Newar society and culture, Newari society evolved to be hierarchical just like a Hindu society. In this Newar caste hierarchy, Pode and Chyame were positioned at the bottom rung and treated as Dalits by other caste groups. Because of the State support to discriminatory practices, the Dalits were deprived of their right to education and they were denied the right to acquire property. They were discouraged from constructing good houses and touch persons of the so-called higher castes. So much so that some sections of the Dalits were even forced to live in the outskirts of the villages or in the filthy slums. The discriminatory practices against the Dalits continued unabated under the feudal political system for centuries. The State (Nepal) formalized the caste system during the reign of King Surendra Bikram Shah when Jung Bahadur Rana, founder of the autocratic Rana rule, promulgated the Muluki Ain (Legal Civil Code) in 1854. This Code which might be described as the first proclamation of State authority on all matters concerning the social and religious rights of individuals, organized Nepalese caste and ethnic groups into the following four categories: i. Tagadhari (caste wearing thread); ii. Matwali (liquor consuming caste); iii. Pani nachalne- chhoi chhitto halnu naparne (castes from whom water is not accepted, and whose touch does not require sprinkling of water); and iv. Pani nachalne- chhoi chhitto halnu parne (castes from whom water is not accepted and whose touch requires sprinkling of water). The Muluki Ain, thus, reconstructed Nepalese social structure into four-fold caste hierarchy and placed Dalits - the communities belonging to the fourth category, at the bottom of the caste hierarchy. Before the implementation of the law, the indigenous nationalities had an egalitarian social structure and they were outside the four-fold Varna and Hindu caste system. As the Code was the first ever law applicable all over the country, the practice of untouchability was universalized and Hinduized. Matawalis, the indigenous nationalities, who never belonged to four-fold Hindu Varna model, were also placed in second layer of the caste hierarchy. They were legally forced to be discriminated against by Tagadharis, and they were forced to practice discrimination and untouchability against two other castes placed below them. Similarly, the Code enforced the discriminatory practice and divided Dalits into a hierarchy. This compelled Dalits to practice untouchability and discriminate against those who are placed under them within the broad group of Dalit. Accordingly, the atrocities against the Dalit caste people were intensified. In the Muluki Ain, the Brahmins, holding the highest position in the Hindu caste hierarchy, were excluded from capital punishment, while the other caste people, including the Dalits were subject to punishment. If four different caste groups commit same crime, the Tagadharis would get the least punishment, while the Dalits would get the highest. 14 Minority Rights Protection in Federal System

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Although the country witnessed various political turmoils, e.g., the overthrow of Rana regime in 1950, and the establishment of democratic government in 1958, the Legal Code of 1854 remained in force with only moderate informal adjustments until 1963 when the New Legal Code (Naya Muluki Ain) was enforced under the Panchayat System. This New Code marks the beginning of a new era of the most radical dramatic changes in Nepal, since it stated that legally every citizen is equal irrespective of caste, creed and sex. The Muluki Ain of 1963 also abolished the discrimination between the Brahmins and other castes in the matter of capital punishment. But it, unfortunately, did not declare the act of untouchability punishable. The restoration of democracy in 1990 intensified the voice of the subdued sections of the society. The Constitution of 1991 (Constitution of Nepal 2047 BS) reiterated the equality of rights and authorities of all citizens, and also declared discrimination on the basis of caste as punishable. It stated that "No person shall be discriminated against on the basis of caste. No person's presence shall be prohibited in public places and no person shall be prevented from using public property. Violation of such laws will be punishable." On this basis, an amendment was made to the Muluki Ain, which was published in 1992 under Chapter 19, Article 10(A). It said that, "If anyone practices untouchability toward another, or if anyone prohibits another's presence in public places, or if anyone prevents another's use of public property, then such a person will be imprisoned for one year, fined Rs. 3000 or made to suffer both." However, in the explanation of this clause it is said that, "But in temples and religious places, practices that have been traditionally engaged in will not be considered discriminatory practices." This provision attempted to undermine the spirit of the original. After the Peoples' Movement of 2006, the reinstated House of Representatives declared Nepal as a caste based untouchability free country but the declaration is more rhetoric than reality due to weakness in its implementation. Article 14 of the Interim Constitution of Nepal 2007 establishes right against untouchability and racial discrimination. Also, Article 21 of the Interim Constitution has provided the right to inclusion for Dalits. While these are important steps toward creating an atmosphere for Dalits inclusion and elimination of discrimination, there remains a large gap between sentiments carried by these statements and actual practice. 5. Current Situation of Dalits Although the caste system is abolished legally, the presence of the casteist ideology overwhelms all aspects of life in Nepal. Privilege, opportunities, prestige, status on the one hand and material deprivation and deprivation of bases of self-respect on the other, are all linked to the caste-class matrix. Thus in virtually all aspects of access to socio-economic opportunities and subsequent improvement of life situations, the Dalits occupy the lowest rung of the ladder. Despite some constitutional/legal efforts, caste based prejudice and discrimination against the Dalits has persisted as a bitter truth in Nepalese society, more so in hills and rural areas. Untouchability is a pervasive socio-cultural phenomenon from which radiates non-commensual behaviors including restrictions on entry of temples, monasteries, non-acceptance of water, and many food items, uneven access to resources, and segregated settlement. Prejudices born out of the concept of inborn superiority are also pervasive in bureaucratic behavior. 15 Minority Rights Protection in Federal System

/fhon] y'k } dxtjk"0f{ /fhgllts kl/jt{g h:t} @))& ;fndf /f0ff zf;gsf] cgto, @)!% df k hftflgqs ;/sf/sf] lgdf{0f u/]sf] eptfklg @)@) ;Dd ;fgf dl;gf ;+Zff]wg;lxt!(!! s} d'n'sl P]g nfu' ul/psf] lyof]. @)@) ;fndf k~rfotl Joj:yfdf goff d'n'sl P]g nfu' ul/psf] lyof]. t/klg o; P]gn] g]kfndf dxtjk"0f{ kl/jt{gsf] ;'?jft u of], goff o'ult/ cl3a9\g k ]l/t u of]. o; P]gn] d'n'ssf ;Dk"0f{ gful/snfo{ h'g;'s} hft, k]zf / lnª\u eptfklg ;dfg clwsf/ k bfg u/]sf] lyof]. @)@) ;fnsf] d'n'sl P]gn] afx'g / cgo hftsf alr /x]sf] sfg'gl ;hfosf] lje]bsf] cgto u of]. t/ o; P]gn] c5'tsf] Jojxf/ ug]{ JolQmlj?4 sfg'gl ;hfosf] 3f]if0ff ug{ ;s]g. @)$^ ;fndf k hftgqsf] k'gm:yfkgfkzrft\ ;dfhdf lk5l8psfx?sf] cfjfh ;'lgb} cfpsf] 5. g]kfn clw/fhosf] ;+ljwfg @)$& n] ;Dk"0f{ hgtfnfo{ ;dfg clwsf/sf] ;'lglzrttf ug'{sf] ;fy} c5'tsf] ceof;nfo{ sfg'gl ;hfosf] 3f]if0ff u of]. o;df s;}nfo{ klg hftsf] cfwf/df lje]b ug{ gkfog], ;fj{hlgs :yfg / ;DklQdf s;}nfo{ klg lgif]lwt ug{ gx'g] / o; lgodsf] pnn+3g epdf ;hfosf] eflubf/ x'g;sg] hgfopsf] 5. o;sf] cfwf/df @)$& df k sflzt d'n'sl P]gsf] bkmf!( sf] pkbkmf!)-s_ df Pp6f ;+zf]wg ul/of]. olb s;}n] c5'tsf] Jojxf/ u/]df jf ;fj{hlgs :yfg jf ;DkflQsf] k of]udf s;}nfo{ lgif]w u/]sf] kfopdf! jif{;dd s}b jf?= # xhf/ hl/jfgf jf b'j} ;hfo x'g;s5 elgof]. o; lgodfjnldf dlgb/ tyf wfld{s sfo{:yndf k/dk/fut?kdf x'fb} cfpsf] sfo{df o:tf lje]bsf] ceof;df eg] of] lgod nfu' x'g]5}g elgof]. o:fn] km]l/klg blntsf] efjgf / rfxgfdfly 3ft ug]{ k of; u of]. hgcfgbf]ng kzrft\ @)%* ;fndf k ltlglw ;efsf] k'g:yf{kgf eof] / g]kfnnfo{ 5'jf5'td'Qm d'n's 3f]if0ff ul/of]. t/klg sfof{gjogsf] sdln] pqm 3f]if0ff sfuhl vf]:6f] ;fljt eof]. g]kfnsf] cgtl/d ;+ljwfg @)^# sf] wf/f!$ n] c5't tyf jul{o lje]blj? s'/f u/]sf] 5. wf/f @! n] blntnfo{ /fhosf lgsfox?df ;dfj]z ul/g'kg]{ / k fyldstfsf ;fy clwsf/ lbg'kg]{ s'/f u/]sf] 5. ol k fjwfg blntnfo{ ;dfj]z u/l lje]b x6fpgsf lgldt dxtjk"0f{ eptfklg o:fn] af]s]sf efjgf / Jofjxfl/s ceof;df 7"nf] cgt/ /x]sf] 5. %= blntx?sf] xfnsf] cj:yf sfg'gl?kdf hftlo lje]b lgd"{n epsf] 5 t/ hftlo ;f]rn] cem} klg g]kfnl hljgdf k ToIf c;/ kfl//x]sf] 5. Psflt/ ;'ljwf, cj;/, OHht, cf]xbfsf] s'/f / csf{lt/ ef}lts ;+/rgf tyf cftd;ddfgaf6 ljd'v x'g' cfhsf] lj8dagf ag]sf] 5. ;fdflhs / cfly{s cj;/df kx'ffr / hljgofkgsf] cj:yf ;'wfg{] cj;/df blntx?sf nflu ;Lldt :yfg k fkt 5. s]xl sfg'gl k of;afx]s blntx?dfly hftdf cfwfl/t x'g] u/]sf] b'/fu x / lje]b g]kfnl ;dfhsf] tltf] ;To xf]. o;sf] cj:yf kxf8l / b'u{d If]qdf cem a9l 5. 5'jf5't ;+/rgfut ;fdflhs tyf ;f+:s[lts ljs[lt xf] h;n] gful/snfo{ Ps cfk;df lje]bk"0f{ Jojxf/ ug{ clek ]l/t ub{5. pbfx/0fsf nflu dlgb/, u'dafdf k j]z ug{ k ltagw nufpf5, ;xef]hg ug{ lb+b}g, ; f]tdflysf] kx'frdf c;'gtng l;h{gf ub{5, cnu j:tl / j;f]jf;sf sf/0f jlx:s/0fsf] efjgf l;h{gf u/fpf5. hgdhft jul{otfsf] l; fgtsf sf/0f ptkgg x'g] b'/fu x ;/sf/l tyf u}/;/sf/l lgsfosf sd{rf/lsf] Jojxf/df klg JofKt 5. ;+3Lo ;+/rgfdf cnk;+vos clwsf/sf] ;+/If0f!%

As per the census report of 2001, Nepal's overall literacy rate is 54%. The literacy rate of Dalits is much lower than the national average - 21% for Terai Dalits and 42% for Hill Dalits. The Living Standard Survey 2010/11 reflects that the overall poverty level has declined to 25.16%, but the poverty level of Dalits are still extremely high (Hill Dalit - 43.36% and Terai Dalit - 38.16%): in fact the highest among all the enlisted caste/ethnic groups (Annex: Table-1). According to the Nepal Human Development Report 2004, about 15% of Dalits in the hills and 44% of Dalits in the Terai are landless. The Nepal Human Development Report 2009 (UNDP 2009) indicates that the life expectancy at birth of Dalits is only 61 years as against the national average of 64 years. Similarly the Human Development Index of Dalits is 0.424 against the national average of 0.509. Dalits score the lowest rank of 18 among the 19 caste/ethnic groups (Annex: Table-2). There has been almost zero involvement of Dalits in the lead positions during the period 1959 to 2005 (Annex: Table-3). The representation of Dalits in civil service - officer level in the year 2007 has remained minimal (Annex: Table-4). There has been no representation of Dalits in parliament during the period 1959-1999, except one Dalit elected in 1991 (Annex: Table-5). Similarly the presence of Dalits in the central committees of major political parties has also remained extremely low (Annex: Table-6). There are, however, 51members (7 directly elected by the people and 44 chosen by parties under proportionate representation) in the present Constituent Assembly. Although the presence of Dalits in the Constituent Assembly as against their national population is still low (only 8% against the population of 14%), there is reason for satisfaction, since the percentage is highest ever in the history of Nepal. 6. Dalits in the Changing Context In the above backdrop and realizing that Nepal cannot become a prosperous, just and democratic country without mainstreaming Dalits in the national development process, various movements/campaigns - led by Dalits and non-dalits, various social groups and political parties, have been witnessed in the country; the latest being the Peoples' Movement of 2006 which led to the overthrow of monarchy and declaration of a federal state. The Interim Constitution 2007 promises an inclusive development institutionalizing/ensuring equality to all citizens. But the letter and spirit of the Constitution, as yet, remains rhetoric. Barring a proportionate numeric representation in the Constituent Assembly, no discernible changes in the living conditions of Dalits could be observed yet. Although the State mechanism in the past and the traditional attitude of the so-called upper caste communities are responsible/accountable for the apathies, the Dalits themselves - particularly the elites and politicians among them, are also to be blamed for the current dilemma. This is in many instances true because of their opportunistic behaviour, and trend to follow the foot-prints of the conservative party leadership, leaving aside the broad objective of doing the well-being of the Dalit community to which they belong; although many of them are able to obtain the status and positions in their respective parties by virtue of this belongingness. The movements of Dalits in the past were largely focused on establishing the identity of Dalits as an equal human being at par with other communities of the society. The movement now, however, is directed towards equity. This equity will not only come from proportionate representation in all aspects of national life, but will also ensure compensatory provisions for faster recovery of gaps. In the changing context, the movement is, therefore, not of identity of Dalits but of equity with Dalits enjoying and sharing all aspects of national life at least at par with their share in the total population. 16 Minority Rights Protection in Federal System

@)%* ;fnsf] hgu0fgfcg';f/ g]kfnsf] ;fif/tf %$ k ltzt /x]sf] 5. blntx?sf] ;fif/tf c+s /fli6«o dfksegbf lgs} Go"g /x]sf] 5, dfq @! k ltzt t/fo{sf blnt / $@ k ltzt kxf8l blnt ;fif/ 5g\. @)%&/@)%* sf] hljg :t/ ;j]{if0f k ltj]bgcg';f/ cf}zt ul/al @%=!^ k ltzt /x]sf] 5, hf] ljutsf] t'ngfdf s]xl sd xf]. t/ cf}zt blntx? cem} ;a}egbf ul/a /x]sf 5g\ M -t/fo{sf blnt #*=!^ k ltzt / kxf8l blnt $#=#^ k ltzt /x]sf] 5_ g]kfn dfgj ljsf; k ltj]bg @)^! sf cg';f/ kxf8df!% k ltzt / t/fo{df $$ k ltzt blnt e"ldxlg 5g\ - cg';"rlm tflnsf!_. g]kfn dfgj ljsf; k ltj]bg @)^^ -o'pgl8kl_ n] blntx?sf] cf}zt cfo' ^! jif{ /x]sf] hfgsf/l lbpsf] 5 hals cf}zt g]kfnlsf] cfo' ^$ jif{ /x]sf] 5. o;}u/l dfgj ljsf; ;"rldf blntsf] c+s )=$@$ dfq /x]sf] / cf}zt g]kfnlsf] c+s eg] )=%)( /x]sf] 5. hfltut jul{o ;d"xdf hddf!( hfltdwo] blntx?!* cf}+ :yfgdf 5g\. @)!^ b]lv @)^@ ;fn;dd g]t[tj txdf blntx?sf] ;+nugtf gu0o /x]sf] 5 cg';"rlm 6]an #_. gful/s ;]jfdf blntsf] k ltlglwtj @)%@ ;fndf clws[t txdf cugo g} /x]sf] lyof] -cg'';"rlm 6]an $_. @)$* ;fndf Ps blntsf] pdd]bjf/lafx]s @)!^ b]lv @)%^ ;fn;dd ;+;b\df klg blntsf] k ltlglwtj /x]sf] lypg -cg';"rlm 6]an %_. o;}u/l k d'v /fhgllts kf6l{sf s]gb Lo ;ldltdf klg pglx?sf] ;+nugtf sd g} /x]sf] 5 -cg';"rlm 6]an ^_. o;sf afjh'b xfn ;+ljwfg ;efdf & hgf k ToIf lgjf{rgaf6 / $$ hgf ;dfg'kflts k ltlglwtjaf6 k'u]sf 5g\ o;/l ;+ljwfg;efdf hddf blnt ;ef;b\ %! hgf 5g\. /fli6«o hgtfsf] bffhf]df ;+ljwfg ;efdf blntsf] pkl:ylt lgs} sd -!$ k ltztsf] bffhf]df s]an * k ltzt_ eptfklg g]kfns} Oltxf;df ;a}egbf a9l epsfn] ;Gtf]if ug]{ 7fpF /x]sf] 5. ^= Kfl/jt{gsf] ;Gbe{df blntx? o:tf] e"ldsfdf blntx?nfo{ g]kfnsf] /fli6«o ljsf;sf] k lqmof, pglx?s} g]t[tjdf ljlegg cfgbf]ng / sfo{qmd, ljlegg ;fdflhs ;+:yfg tyf /fhgllts kf6l{df ;+nug ul/pg eg] ;Dd'Ggt, k hftflgqs d'n'ssf]?kdf lrgfpg] s'/f s]an ;kgfdf ;Lldt x'g]5. @)^$ sf] cgtl/d ;+ljwfgn] ;a} hgtfnfo{ ;+ul7t ;dfj]zl ljsf;sf] afrf u/]sf] 5. t/ cem}klg ;+ljwfgsf cif/ / efjgf cfnª\sfl/stfdf ;Lldt 5g\ Jofjxfl/s k of]u epsf] 5}g. ;+ljwfg ;efdf ;+Vofsf cfwf/df k ltlglwtj gep;dd blntx?sf] hljg:t/df ;'wf/ Nofpg]af/] ;f]rg ;ls+b}g. ljutdf zf;gsf] ljlw / prr ju{ egf}+bfx?sf k/dk/fut ;+sl0f{ ;f]rfo / kl/jt{k ltsf] pbf;lgtf sf/0f blnt ;d'bfo ;fdflhs ljsf;df cufl8 cfpg ;s]g. o;sf nflu blntsf] g]t[tj u5{'egg] o;} ;d'bfosf JolQmx?sf] sdhf]/l klg ;xfos ag]sf] 5. g]t[tjsf] cj;/jfbl Jojxf/n] blnt cfgbf]ngn] ult lng ;s]g,?9ljfbl g]tfn] lgdf{0f u/]sf] gs;fcg';f/ rngvf]hbf cndn dfq l;h{gf eof]. pglx?n] cfˆgf] ptklqsf] ;d'bfonfo{ la;]{/ s}of}+ k6s cf cfkm\gf kf6l{df kb / k lti7f k fkt u/]/ a;]sf 5g\. blnt ;d'bfosf] kl5nnf] cfgbf]ngsf] dfu ;dfhsf cgo ;d'bfo;/x dfgj hfltsf] Jojxf/ k fkt xf];\ egg] g} xf]. ;dfgtfsf] l;4fgtdf cfwfl/t klxrfgsf] :yfkgf o; cfgbf]ngsf] nio xf]. t/ ;dfgtfdf k'ug ;dtfsf] af6f] kf/ ub}{ cl3a9\g'kg]{ epsfn] cf/if0f jf ;sf/ftds lje]b klg dfusf] ljifo ag]sf] 5. d'n'ssf] x/ txdf ;+Vofsf] cg'kftdf k ltlglwtj Nofpg ;lsp dfq ;dtf xfl;n ug{ ;lsg5. blntsf ;DaGwdf ;dtfsf] s'/f p7fpfbf Oltxf; sfnb]lv cgo hft;fu /lxcfpsf] vf8n k'g]{u/l jf lje]b x6fpg] ;f]rsf ;fy cl3a9\g' cfjzos 5. kl/jt{gsf] ;Gbe{df blntx?sf] cfgbf]ng klxrfgsf nflu gep/ hg;+vofsf] cfwf/df plrt cj;/ k bfg x'g'kg]{ s'/fdf s]lgb t /x]sf] oyfy{ a'e\mg' cfjzos 5. ;+3Lo ;+/rgfdf cnk;+vos clwsf/sf] ;+/If0f!^

7. State Restructuring and the Concerns of Dalits Attention of Dalits in Nepal at present is revolving around two major elements of the New Constitution: State Restructuring and Dalit Special Rights. The State Restructuring and State Power Distribution Committee (SRSPDC) formed by the Constituent Assembly has unanimously adopted identity and capability as the two bases for state restructuring. The Committee has specified five elements of identity (caste/ethnicity, language, culture, territorial/geographic continuity, and historical continuity) and four elements of capability (infrastructural development, natural resources, economic interrelations and accessibility to administrative services). The State Restructuring High Level Recommendation Commission (SRHLRC) followed the principles of SRSPDC and adopted "identity with capability" as the basis for state restructuring. In view of State Restructuring, the opinions of Dalit communities are divided into three broad schools of thoughts, namely, (i) Dalits require separate territorial province/s, (ii) Dalits do not need a separate province, and (iii) Dalits should have a non-territorial province. A sizable proportion of Dalit and non- Dalit intellectuals, NGOs, civil society organizations and general public believe that there should be separate province/s for Dalits. The argument put forward by them is that Dalits constitute a large percentage of the national population. They retain a discernible identity - an identity of ex-untouchable community and the most exploited, marginalized and excluded community. As such, the Dalit community deserves and is entitled to have separate province/s. The Dalit community holding this view are demanding to make Khaptad Dalit province by incorporating different districts of the farwest region including Bajhang, Achham, Bajura, Mugu and Kalikot, to make Sarbajit Dalit province by incorporating Myagdi, Baglung and Parbat district, and Sahales Dalit province by incorporating Siraha, Dhanusha and Saptari districts of Terai 7. In an attempt to locate Dalit province/s, three different clusters of VDCs with Dalits as dominant caste groups (based on 2001 census data) were identified with the help of GIS technology. Cluster-I in eastern Terai partially included Saptari, Siraha and Dhanusha districts consisting of 43 VDCs with a Dalit population of 81,478; Cluster-II in western region partially including Baglung and Myagdi districts consisting of 11 VDCs with a Dalit population of 18,662; and Custer-III in far and mid-western region partially including Surkhet and Dailekh districts consisting of 9 VDCs with a Dalit population of 14,042. The Dalits were found the largest caste/ethnic group in these clusters with their respective percentages of 27.22, 40.50 and 34.04 percentages respectively. But these clusters were very small in geographic area to justify their identity as separate provinces. As a second attempt, these three clusters were expanded by incorporating the VDCs having Dalits as the second dominant caste/ethnic group. With this expansion, cluster-i partially included Sapatari, Siraha, Udayapur, Dhanusha and Sindhuli districts. The population increased to 11,31,594; but the Dalit population fell to 17.9% and lost dominance in the cluster. Likewise, Cluster-II was expanded to include Baglung, Myagdi, Parbat and Rolpa districts. The population increased to 3,00,938; but the Dalit population became almost equal to Magar population, i.e. 25.8%. In the same way, the expansion of Cluster-III included Dailekh, Surkhet and Kailali districts. 7 Articles published in news papers/media and press release of Dalit organizations dated January 12, 2012 17 Minority Rights Protection in Federal System

&= /fho k'gm;+/rgf / blntsf ljifo g]kfndf blntx?sf ;DaGwdf goff ;+ljwfgn] ;Daf]wg ug'{kg]{ b'o{ k d'v ljifo /x]sf 5g\ /fho k'gm;+/rgfdf blntsf] :yfg / pglx?sf nflu ljlzi6 clwsf/. ;+ljwfg ;efn] v8f u/]sf] /fho k'gm;+/rgf tyf zlqm aff8kmff8 ;ldlt -P;cf/ P;kL8L;L_ n] klxrfg / ;fdyo{nfo{ /fho k'gm;+/rgfsf] cfwf/ agfpsf] 5. ;ldltn] klxrfgsf kffr cfwf/df hft, ju{, efiff, ;+:s[lt, ef}uf]lns jf If]qLo lg/gt/tf / P]ltxfl;s lg/gt/tfnfo{ /fv]sf] 5 / ;fdyo{sf lgldt ;+/rgftds ljsf;, k fs[lts ; f]t, cfly{s cgt/;dagw / k zf;lgs ;]jfdf kx'fr u/l rf/ cfwf/sf] JofVof u/]sf] 5. /fho k'gm ;+/rgf ;'emfp prr:t/lo cfof]u n] klg /fho k"g;+/rgf tyf /fho zlqmsf] aff8kmff8 ;ldltsf] l; fgtnfo{ k5\ofpfb} ;fdyo{ ;lxtsf] klxrfgnfo{ k'gm;+/rgfsf] cfwf/ agfpsf] 5. /fho k'gm;+/rgfsf] ljifodf blnt ;d'bfosf] tlg lsl;dsf] a'emfo kfopsf] 5. tl x'g\, -!_ blntsf lgldt 5' } If]qLo k b]z h?/l /x]sf], -@_ blntsf lgldt 5' } k b]zsf] h?/l gepsf] / -#_ blntsf lgldt u}/ef}uf]lns k b]z h?/l /x]sf]. blnt tyf u}/blnt lj1sf] Ps 7"nf] hdft, u}/;/sf/l ;+:yf, gful/s ;dfhsf ;+u7gx? / ;fwf/0f hgtfn] blntsf lgldt 5' } k b]z x'g'kg]{ s'/fdf ;dy{g u/]sf 5g\. pglx?sf] egfodf blntx?n] s'n hg;+vofsf] Ps 7"nf] lx:;f ;d]6\5g\ / pglx?nfo{ c5't ;d'bfo, zf]lift, ;LdfGts[t / lk5l8psf ;d'bfodf ulgg] ul/g5 o; sf/0f blnt ;d'bfon] Ps 5' } k b]z kfpg' pko'qm x'g]5. of] ;f]rfo /fvg] blntx?n] ;'b"/ klzrd If]qsf ljlegg lhnnfx? aemfë, c5fd, afh'/f, d'u' / sflnsf]6 ldnfo{ vkt8 blnt k b]z, DofUbL, afun'ë / kj{t lhnnf ldnfp/ ;j{lht k b]z / t/fo{sf l;/fxf, wg'iff / ;Kt/L lhnnf ldnfo{ zxn]; k b]zsf] k :tfj u/]sf 5g\&. blnt k b]z If]q tf]sgsf lgldt lhcfo{p; k ljlwsf] pkof]u u/l blntsf] jr{:j /x]sf tlg ljlegg lhlj;sf - @)%* sf] hgu0fgfcg';f/_ ;d"xsf] klxrfg ul/psf] lyof]. ;d"x o; k sf/ lgwf{/0f ul/of] ;d"x!m k"jl{ t/fo{df ;Kt/Lsf s]xl e"efu, l;/fxf / wg'iff lhnnf h;df hddf $# lhlj;df *!,$&* blnt a;f]af; ub{5g\, ;d"x @M klzrd If]qdf afun'ªsf s]xl e"efu / DofUbL lhnnf h;df hddf!! lhlj;df!*,^^@ blnt a;f]af; ub{5g\, ;d"x #M ;'b"/ tyf dwo klzrdf If]qdf ;'v]{tsf s]xl e"efu / b}n]v lhnnf h;df hddf ( lhlj;df!$,)$@ blnt a;f]af; ub{5g\. ol If]qx?df blntx?sf] ;+Vof @&=@@, $)=%) / #$=)$ k ltzt /x]sf] lyof]. t/ ol If]qx? blntx?sf] klxrfgsf lgldt 5' } k b]zsf nflu ef}uf]lns cfsf/df ;fgf lyp. bf]; f] k of;df ol tlg ;d"xdf blnt hftsf] ;d'bfosf] ;+Vof bf]; f] :yfgdf cfpg] lhlj; ld;fp/ cfsf/ km}nfpg] sfo{ ul/of]. lj:tf/kzrft\ klxnf] ;d"xdf ;Kt/Lsf s]xl e"efu, l;/fxf, pbok'/, wg'iff / l;gw'nl lhnnfx? k/]. ol If]qsf] s'n hg;+vof!!,#!,%($ k'uof] h;df blntsf] ;+Vof s]an!&=( k ltzt dfq b]lvof]. o;/l k b]zsf nflu ef}uf]lns jr{:j sfod x'g g;s]sf sf/0f u}/ef}uf]lns /fhosf] cjwf/0ff /flvpsf] xf]. o;}u/l bf]; f] ;d"xdf k/]sf afun'ª, DofUbL, kj{t / /f]nkf lhnnfx?df klg ToxL l:ylt bf]xf]l/of]. If]qsf] s'n hg;+vof #,)),(#* k'uof] t/ blntsf] ;+Vof @%=* k ltzt dfq b]lvof] hf] du/ hfltsf] ;+Vof ;dfg lyof]. ;d"x # df b}n]v, ;'v]{t / s}nfnl lhnnfx? lyp. & cvaf/df k sflzt n]v, blnt ;+u7gx?af6 hf/l k ]; lj1lkt, k'; @*, @)^* ;+3Lo ;+/rgfdf cnk;+vos clwsf/sf] ;+/If0f!&

The population increased to 3,30,004, but the Dalit population fell to 27.1% and lost dominance. These exercises and explorations revealed the following: = Dalits are scattered all over the country = Dalit clusters are not justified in terms of geographic size and population in order to constitute a Province = If such clusters are considered for provinces, most population of Dalits fall out of the provinces = If provinces are conceived with territorial boundaries extending to areas having Dalits as second dominant population, Dalits would loose their dominance as largest community in the provinc Some Dalits advocate the second school of thought on State Restructuring, i.e., there should be no separate province for Dalits. The reasons given are: Dalit identity will be a permanent label and shame for the community, and special rights may be at risks. It is, however, to be reckoned that Dalit is an identity of struggle against discrimination, and not a label for castes. The advocates also appear to have political biases - not favouring the identity-based restructuring as per their respective party guidelines. The State Restructuring and State Power Distribution Committee, possibly influenced by this school of thought, did not include a Dalit province in its proposed 14 province model (SRSPDC 2010). This model, however, has embodied identity-based restructuring in the proposal. A large proportion of Dalit as well as non-dalit communities hold the third school of thought, i.e., Dalits require a non-territorial province. In view of the dispersed nature of Dalits all over the country, lack of concentration of Dalits in sizable clusters, and the need for a separate province for Dalits to specifically deal with their specific issues and concerns, the proponents of this school of thought strongly believe that a non-territorial province will be most suitable for Dalits, and are, therefore, putting forth the demand for a non-territorial Dalit province in the new structure of Nepal. But some among the Dalit community seem to view non-territorial federalism with apprehension. They say, the non-territorial province is just a palace in the air, there is no army, no revenue source, an arrangement of Dalits ruling only Dalits, and just a means of mystifying the Dalit communities. They also argue that some village development committees and areas could have Dalits as the plural groups and declaring regions for Dalits should be their agendas. The proponents, however, say declaring a few VDCs and a region as a Dalit region could provide symbolic satisfaction to many, but it will not protect the interests of Dalits living in other parts of Nepal. A major concern shown against the territorial federal structure is that many groups are territorially dispersed and hence territorial federalism may not address the aspirations for autonomy of the dispersed groups. Non-territorial federalism can provide autonomy to territorially dispersed groups. Some of the better known examples of non-territorial federal practices are Belgium, Cyprus, New Zealand (Maori) and Norway (Sami). As globalisation increases and the world becomes more multiethnically mixed, non-territorial federalism may gain more attention, practically as well as academically. A combination of territorial and non-territorial federalism would, hence, recognise the reality of Nepal and address both dimensions of Nepali society: autonomy of various territorially concentrated and dispersed groups. The recently submitted report of the State Restructuring Recommendation High Level Commission (SRRHC 2012) has recommended a non-territorial province for Dalits, along with other 10 territorial provinces. 18 Minority Rights Protection in Federal System

h;df s'n hg;+vof #,#),))$ k'uof] t/ blntsf] ;+Vof @&=! k ltzt dfq b]lvof]. o; cwoogaf6 ol lgsof]{n lgsflnp, ü blntx? d'n'se/ 5l/P/ a;]sf 5g\ ü blntsf ;d"xnfo{ 5' } k b]z 3f]if0ff ug{ ef}uf]lns If]q / hg;+vofn] ;dy{g ub}{]g ü olb ol ;d"xnfo{ k b]z 3f]if0f ul/pdf blntsf] 7"nf] ;+Vof k b]zaflx/ kg]{5 ü olb ol k b]znfo{ ef}uf]lns cfwf/df blntsf] bf]; f] 7"nf] hg;+vof epsf] If]q;Fu ;dfj]z ul/pdf blntx?n] jr{:j u'dfpg] 5g\. s]xl blntx?n] /fho ;+/rgfsf] bf]; f] ;f]rfo cyf{t 5' } k b]zsf] cfjzostf g/x]sf] jsfnt ug]{{ u/]sf 5g\. o; k5fl8sf ts{x?df blntsf] klxrfg ;bfsf nflu x'g]u/l Joj:yf ug{ k b]zsf] cjwf/0ff 7Ls x'fb}g. o; ;d'bfosf lgldt nhhf:kb x'g] tyf ljlzi6 clwsf/sf] ;'lglzrttf x'g g;sg] u/l k b]z u7g ug'{ /fd f] xf]og. blntnfo{ Pp6f hftdf ;Lldt agfpg'egbf lje]blj? cfjfh p7fpg] ;d'bfosf] klxrfg k bfg ug'{kb{5 egg] pglx?sf] wf/0ff 5. o; wf/0ffsf] jsfnt ug]{x?df /fhgllts dte]b klg /x]sf] kfog5, cfkm\gf kf6l{ lgb]{zgcg';f/ klxrfgsf cfwf/df /fhosf] k'gm;+/rgfsf lgldt jsfnt ug]{ / gug]{x?sf ljrf/ klg aflx/ cfp. /fho k'gm;+/rgf tyf zlqm aff8kmff8 ;ldlt klg o; ;f]rfoaf6 k efljt epsf] x'g;s5 / cfkm\gf] k :tfljt!$ k b]zsf] k :tfjdf blnt k b]znfo{ ;dfj]z u/]sf] 5}g. t/ o;n] clwsf/sf] ;'/Iff ug]{ l;4fgtsf cfwf/df /fhosf] k'gm;+/rgf x'g'kg]{ s'/f eg] pnn]v epsf] 5. blntsf] Ps 7"nf] ;d"x Pj+ u}/blnt ;d'bfo klg t]; f] ;f]rfo cyf{t u}/if]qlo k b]zsf] h?/t epsf]df ;dy{g ub{5. blntx? d'n'se/ 5l/P/ a;f]af; u/]s]f cj:yfdf s'g} :yfgdf pglx?sf] jfx'notf sfod x'g;sb}g egg] pglx?sf] ts{ 5. t/klg blntx?sf] ljlzi6 ;d:of ;dfwfgsf lgldt 5' } k b]zsf] cfjzostf ckl/xfo{ /x]sfn] u}/ef}uf]lns k b]zsf] ;f]rfo g} pglx?sf nflu ;jf]{qd ;fljt x'g] s'/fdf 7"nf] ;+Vofsf] dt / dfu /x]sf] 5. s]xl blnt ;d'bfon] u}/ef}uf]lns ;+3LotfnfO{ cfz+sfsf] b[li6n] x]/]sf 5g\. If]q ljgfsf] k b]z eg]sf] xfjfdf dxn v8f ug'{xf] h;df s'g} ;'/IffsdL{, cfdbfglsf] ; f]t gx'g] / blntnfo{ zf;g s]an blntn] ug]{ s'/f ;'lglzrt gx'g] x'gfn] blnt ;d'bfonfo{ e ddf kfg]{ if8ogq xf] egl ts{ klg u/]sf 5g\. pglx? eg5g\, s]xl Ufflj; / If]qdf blntnfo{ ax'hftlotfsf cfwf/df pglx?sf] If]q 3f]if0f ug{' a'l4dfgl x'g5. k :tfjsn] s]an s]xl uflj; tyf If]qnfO{ blnt If]q 3f]if0ff u/l ;d'bfonfo{ ;f+s]lts v';l k bfg x'g] t/ d'n'ssf cgo :yfgdf /x]sf blntsf rfxgf eg] k"/f gx'g] oyfy{ :jlsf/ u/]sf 5g\. k fb]lzs ;+/rgfdf w]/}sf] rf;f]sf] ljifo blnt ;d'bfosf] ljs]lgb t a;f]jf; /x]sf] 5, h;sf sf/0f ;+3Lotfn] tl ;d"xsf ck]lift :jfoqtfsf] ljifonfo{ ;Daf]wg ug{ ;Sb}g. u}/ef}uf]lns ;+3Lotfn] eg] 5l/P/ a;]sf ;d"xnfo{ :jfoqtf k bfg ug{ ;S5. o;sf s]xl ;kmn pbfx/0fx? x'g\, a]lnhod, ;fok ;, Go'lhNofG8 / gj]{. ljzjjofkls/0fsf] dfxf]n / ldl>t ax'hftlo a;f]af; a9\g] qmddf u}/ef}uf]lns ;+3Lotfsf dfu ylk+b} hfg;s5g\. o;k lt Jofjxfl/s tyf ;} flgts?kdf cem a9l Wofg k fkt x'g;s5. g]kfnsf] jf:tljs cj:yfsf] lrq0f If]qLo tyf u}/if]qlo ;+3Lotf b'j}sf] d]ndf x'g;s5 / g]kfnl ;dfhsf] s]lgb t / ljs]lgb t tj/df a;f]jf; ul//x]sf ;d"xn] b'j} w 'jnfo{ ;d]6\g klg ;S5. /fho k'gm;+/rgf tyf zlqm aff8kmff8 ;ldltn] xfn} a'emfpsf] k ltj]bgn] blntsf lgldt!) If]qLo k b]zsf ;fy} u}/ef}uf]lns ;+3Lotfsf] k :tfj u/]sf] 5. o; k ltj]bgn] cfof]usf] l;kmfl/;nfo{ ;dy{g u/]sf] 5 / u}/ef}uf]lns ;+3Lotfdf blntsf ljifo, cfjzostf tyf rfxgf ;Daf]wg ug]{ ljlw klxrfg u/]sf] 5. ;+3Lo ;+/rgfdf cnk;+vos clwsf/sf] ;+/If0f!*

This paper supports the recommendations of the Commission, and describes below the mechanism through which the concerns, needs and aspirations of Dalits could be directly addressed in the nonterritorial federal model. 7.1 Mechanisms for Non-Territorial Dalit Province The non-territorial Dalit province will have its own legislature (provincial assembly), executive body (provincial government) and judiciary; just the same way as other territorial federal units. The provincial assembly will formulate legislations dealing with Dalit issues and rights, and will elect provincial government. The body will also be a permanent forum for Dalits for defending its rights and interests. There could be two options for constituting the legislature: (i) Option-I: the legislature is formed by members directly elected by the Dalit voters from respective Dalit constituencies, and (ii) Option-II: the legislature is formed by Dalit members elected in the legislatures of various territorial federal units. Under option-i, a legislative body would be formed through an election where Dalits all over the country vote. The election of such a body will make the leadership accountable to Dalits instead of being loyal to the party leadership that might otherwise nominate them. It will increase the autonomy of Dalits from the "high" caste party and civil society leadership and make the Dalit movement more people-centric. Elections to such a body could be held during local elections to minimise costs. Dalit voters will cast two votes-one for the regular election while another to elect representatives to their body. The assembly could be formed with representation of various subcastes. Smaller sub-castes should be over represented in the assembly. Under Option-II, the legislature for the non-territorial Dalit province will be formed through congregation of the Dalit members elected in other territorial federal units. It may de facto look like a council consisting of Dalit legislatures of all territorial federal units. This option could be desirable in view of saving national budget on elections, salaries and allowances of legislatures. The members will participate in their respective federal unit and the non-territorial Dalit province. The Executive Body (provincial government) will be formed through elections in the legislature. The government will focus on Dalit issues especially, education, social development, skills development, health/hygiene, employment generation, economic opportunities and political empowerment. The provincial government will be awarded rights to decide over Dalit issues and a budget to implement activities it seeks to promote. The body will deliberate and decide on behalf of Dalits and represent them in negotiations with the Centre, Other Provinces, and local levels. Likewise, a judiciary will be formed which will look into cases of caste-based discrimination, and violations of constitutional/legal provisions on Dalit inclusion and special rights. 7.2 Special Rights for Dalits Realising the needs for a speedy action to ensure equitable participation of Dalits in all aspects of national life, the State Restructuring and State Power Distribution Committee as well as the State Restructuring Recommendation High Level Commission have unanimously recommended special rights for Dalits in economic, political, cultural, educational and social sectors to be included in the fundamental right section of the New Constitution. These special rights would account for a historical compensation to Dalits in lieu of the historic State-engineered atrocities and discrimination practiced against them. 19 Minority Rights Protection in Federal System

o; k ltj]bgn] cfof]usf] l;kmfl/;nfo{ ;dy{g u/]sf] 5 / u}/ef}uf]lns ;+3Lotfdf blntsf ljifo, cfjzostf tyf rfxgf ;Daf]wg ug]{ ljlw klxrfg u/]sf] 5. &=!= u}/ef}uf]lns blnt k b]z lgdf{0f ljlw u}/ef}uf]lns k b]zsf klg cgo If]qLo ;+3Lo PsfO{h:t} cfkm\g} ljwflosf -k fb]lzs ;ef_, sfo{kflnsf -k fb]lzs ;/sf/_ / Gofokflnsf x'g]5g\. k fb]lzs ;efn] blntsf ljifo tyf clwsf/nfo{ ;Daf]wg ug]{ ljlw tof/ kfg]{5 / k fb]lzs ;/sf/ r'gg]5. o; ;efn] blntsf clwsf/ / rfxgf :yfkgf ug]{ :yfol kmf]/dsf]?kdf sfd ug]{5. Joj:yflksf ;+;b\sf] lgdf{0f b'o{ lsl;dn] x'g;s5 -!_ k ToIf blnt k ltlglwsf] lgjf{rg / -@_ ljlegg ;+3Lo PsfO{af6 r'lgpsf ;b:ox?n] lgdf{0f ug]{ Joj:yflksf ;+;b\. klxnf] ljsnkdf b]ze/sf blntn] r'gfjl k lqmofaf6 Joj:yflksfsf] lgdf{0f ug{]5g\. o;f] ugf{n] kf6l{k lt em'sfj gep/ hgtfsf k ltlglwsf] ;+;b\df ;lqmo ;+nugtf x'g;s5. o;/l blntnfo{ dflynnf] ju{ tyf ;dfhsf cgo ;d'bfosf g]tf / pglx?sf kf6l{af6 :jfoqtf ldng]5. blntsf sfo{qmdx? blntdf g} s]lgb t x'g]5. ah]6 s6f}tlsf lgldt :yfglo r'gfj;fu} o;sf] klg r'gfj ug{ ;lsg5. blntx?n] b'o{ dt v;fng] 5g\, Pp6f ;fwf/0f r'gfjsf nflu / csf]{ ;efdf blntsf k ltlglw r'ggsf nflu. o; ;efdf ljlegg ju{sf k ltlglwx?sf] ;b:otf /xg;s5. bf]; f] ljsnkdf, u}/ef}uf]lns blnt k b]zsf nflu Joj:yflksfsf] lgdf{0f cgo ;+3Lo PsfO{af6 r'lgpsf blntx?sf] ;xdltaf6 x'g]5. o; Joj:yflksfnfO{ ;a} If]qsf ;+3Lo PsfO{sf blnt cfof]usf]?kdf dfgg ;lsg5. d'n'ssf] ah]6, ;f+;bsf] tna / eqf hf]ufpgsf lgldt of] ljsnk /f]hg ;lsg5. o;sf ;b:ox? cfkm\gf ;+3Lo PsfO{ tyf u}/ef}uf]lns blnt k b]zdf ;lqmo x'g]5g\. sfo{kflnsf -k fb]lzs ;/sf/_ sf] lgdf{0f Joj:yflksf ;+;b\df lgjf{lrt ;b:oaf6 x'g]5. o;/l ag]sf] ;/sf/n] blntsf ljifox? ljz]iftm lziff, ;fdflhs ljsf;, ;Lk ljsf;, :jf:yf, /f]huf/ ;[hgf, cfly{s cj;/x? / /fhgllts ;'b[9ls/0fdf Wofg k' ofpg] 5. blntsf ljifox? Pj+ ljlegg sfo{qmdsf] sfof{gjogsf lgldt cfjzos ah]6 lgof]hgsf clwsf/x? k fb]lzs ;/sf/df lglxt /xg]5g\. of] ;/sf/n] blntsf lxtdf ;lqmo?kdf of]ubfg k' ofpg]5 s]gb, cgo k b]z tyf :yfglo txdf k ltlglwtj ug]{5. o;}u/l Ps Gofokflnsfsf] klg lgdf{0f x'g]5 h;n] hftlo lje]bsf ljifo, sfg'gl cj1fsf ljjfb / j}wflgs k fjwfg /x]sf blnt ;dfj]lztf / ljz]if clwsf/ pnn+3gsf d'2fx? x]g]{5. &=@= blntsf nflu ljz]if clwsf/ d'n'ssf] x/]s If]qdf blntx?sf] ;dfg ;xeflutf ;'lglzrt ug{'kg]{ cfjzostf a'em]/ /fho k'gm;+/rgf tyf zlqm aff8kmff8 ;ldlt / /fho k'gm;+/rgf prr:t/lo ;'emfj cfof]un] goff ;+ljwfgsf] cfwf/e"t clwsf/sf] wf/fdf blntsf lgldt cfly{s, /fhgllts, ;f+:s[lts, lziff / ;fdflhs If]qdf ljz]if clwsf/sf] Joj:yf ug{ ;'emfj lbpsf] 5. ol ljz]if clwsf/n] P]ltxfl;s sfnb]lv q'l6k"0f{ /fho ;+/rgfsf sf/0f ctofrf/ / lje]bsf Jojxf/df lkln;psf blntnfo{ k'gm:yfkgf u/fpg d2t ldng]5. ;+3Lo ;+/rgfdf cnk;+vos clwsf/sf] ;+/If0f!(

The Commission has taken the strides further by calling caste based discrimination as "Severe Crime", proposing provision of a minimal land for landless and a basic housing for homeless, 10% additional scholarship provision in technical higher education, 10% additional employment opportunities in government services, army, police, corporations and industries, 5% additional political representation in centre and 7% additional political representation in provinces. These additional provisions are on top of their proportionate representation. 8. Conclusions Dalits have by far remained the most excluded communities in Nepal. Besides being economically oppressed, socially demoralized and politically suppressed, they differ from other excluded communities in their agony which offshoots from the blurs of untouchability. In South Asian context, instigated from Hindu religious beliefs and myths Dalits have been discriminated with deep-rooted cultural/traditional exploitation under caste-based hierarchy by the so-called upper caste clans. Nepal is unique, since it has witnessed legitimization of caste-based discrimination and practice of untouchability through the Country's first Civil Code in 1854. Reckoned as a shameful history, this Civil Code not only discriminated the country's population dividing them into a legal caste-based hierarchy with Dalits holding the lowest rung of the ladder, the Dalits were also forced to execute menial tasks, were subject to differential severe punishments on non-compliance of State rules, and were also devoid of education and owning properties. They were formally classified as "untouchables" - meaning any person if touched by Dalits required purification by sprinkling of holy water. Although the New Civil Code enacted in 1963 and prevalent laws and present Interim Constitution abolishes castebased discrimination, and declares Nepal as an untouchability-free nation, this social evil has continued in various forms and degrees in different spheres of living. Instances and sufferings of Dalits are being revealed through various published/unpublished means and media all over the country, but the country's laws and judiciary have grossly remained incapable to bring the offenders under bar, and humanitarian rights and justice have been disgustingly denied to Dalits. As a consequence of these discriminatory inhuman practices, Dalits are among the poorest communities in Nepal; and could be seen as synonymous to landless and unemployed/jobless communities. They are most backward ones in terms of health, education, life expectancy, and other indicators of human development. Their representation in political parties, government bureaucracy, constitutional entities, and political bodies have remained almost negligible, despite as huge as 14% of the national population are constituted by Dalits. This paper has delved upon how the issues and concerns of Dalits could be addressed in lieu of their struggle from identity to equity in the context of the state restructuring, which has remained one of the most critical and debated elements in the constitution making process in Nepal. Analysing the pros-and-cons of various schools of thoughts on state restructuring in the changing contexts of Dalits, the paper supports the recommendation of the State Restructuring High Level Commission and asserts that a non-territorial province will be the best model for Dalits in Nepal to address their issues and concerns. The paper also describes the mechanism for forming the provincial legislature and executive. It has suggested two options for constituting provincial assembly - direct election from the Dalit voters or congregation of Dalit members of the territorial provinces. The paper has highlighted the roles and responsibilities of the Dalit provincial legislature, executive and judiciary. The paper states that the provincial government should focus on Dalit issues especially related to, education, social development, skills development, health/hygiene, employment generation, economic opportunities and political empowerment. At the end, the paper has dealt on the recommendations of the State Restructuring High Level Commission on special rights for Dalits in economic, political, cultural, educational and social sectors, and advocates these special rights to be included in the fundamental rights section of the New Constitution. 20 Minority Rights Protection in Federal System

cfof]un] hftlo lje]bsf d'2fnfo{ h30o ck/fwsf] >]0fLdf /fv]sf] 5 / e"ldxlgsf nflu ;fdfgo e"ld / 3/af/ laxlgsf lgldt cfwf/e"t 3/, k fljlws If]qdf k9fosf lgldt yk!) k ltztsf] ;/sf/l ;]jf ;}lgs, k x/l, ;+:yfg / sf/vfgfdf yk!) k ltztn] /f]huf/sf] cj;/, s]gb df yk % k ltztn] /fhgllts k ltlglwtj / k b]zdf yk & k ltztn] /fhgllts k ltlglwtjsf] ;'emfj lbpsf] 5. hg;+vofsf] cg'kftdf k ltlglwtjsf ol yk Joj:yfx? k fyldstfdf /fvg ;'emfj lbopsf] 5. *= lgisif{ g]kfndf blnt ;a}egbf lk5l8psf ;d'bfodf kb{5g\. cfly{s?kdf sdhf]/ x'gfsf] ;fy;fy} ;fdflhs :t/df bdg ul/psf / /fhlglts :t/df lkln;psf] blnt ;d'bfon] cgo ;d'bfosf kl8fegbf km/s oftgf ef]ug'k/]sf] 5 h;sf] ;Totf c5't k yfn] huhfx]/ ub{5. blif0f Pl;ofsf] ;Gbe{df, lxgb' wd{sf] cf:yf / ljzjf;sf cfwf/df blntdflysf] zf]if0f hftsf cfwf/df prr ju{sf ;d"xn] ug]{ u/]sf] Jojxf/sf] k/dk/fut ;+:s[lt Pp6f k d'v sf/0f xf]. g]kfndf hftlo lje]b / c5't k yfsf] sfg'gl dfgotf b]zsf] klxnf] d'n'sl P]g,!(!! df lbopsf] lyof]. nhhf:kb Oltxf;sf] 36gfsf]?kdf dflgpsf] o; k fjwfgdf hftsf] cfwf/df d'n'ssf hgtfsf] aff8kmff8 ul/of] / blntsf] :yfg ;a}egbf tnnf] >]0fLdf /flvof]. blntx?nfo{ bf;sf] sfd ug{ jfwo agfogyof] / cj1f u/]df kifkftk"0f{ sfg'g cl3;f/]/ s8f sf/afxlsf] efu]bf/ agfogyof], ;fy} lziff / ;DklQ cfh{gsf] clwsf/af6 ljd'v ul/gyof]. pglx?nfo{ cf}krfl/s?kdf c5'tsf] ;+1f lbopsf] lyof] / olb s;}nfo{ 5f]Ps]f v08df rf]vf] kfglú 5ls{g] k yf lyof]. d'n'sl P]g @)@) / xfnsf sfg'gl k fjwfg tyf cgtl/d ;+ljwfgn] hftlo lje]blj?4 sfg'g agfpsf] / g]kfnaf6 hftlo lje]b lgd"{n kf/]sf] eg]tfklg o;sf] ;+:sf/ xfd f] ;dfh / b}lgs hljgdf ljlegg?kdf cfhklg sfod 5. d'n'ssf ljlegg ;~rf/ dfwod / cgo dfwodaf6 hftlo lje]bsf ;dfrf/ cem} ;'Gg / k9\g kfog5 t/ d'n'ssf] sfg'g / Gofokflnsf eg] ck/fwlnfo{ ;hfo lbg c;kmn /x]sf] 5 h;sf] sf/0f blntx?sf] dfgjlo Gofo / clwsf/ ;'lglzrt x'g ;s]sf] 5}g. o; lsl;dsf] cdfgjlo lje]bsf ceof;n] ubf{ blntx? g]kfndf ;a}egbf ul/adf ulgg5g\ / e"ldxlg, a]/f]huf/ ;d'bfosf] kof{o ag]sf 5g\. :jf:yo, lziff, cfo' / dfgj ljsf;sf cgo kl/;"rsdf blntx? ;a}egbf k5fl8 5g\. d'n'sf] hg;+vofsf]!$ k ltzt blntx?sf] /fhgllts kf6l{, ;/sf/l sd{rf/l, ;+j}wflgs c+ux? / /fhgllts lgsfox?df k ltlglwtj Go"g /x]sf] 5. o; cfn]vdf /fho k'gm;+/rgfsf] ;Gbe{df s;/l blntsf ljifox?nfo{ klxrfg ug]{ / ;dtfd"ns ;dfhsf] lgdf{0f ug]{ egg] ljifodf 5nkmn ul/of]. of] g]kfnsf] ;+ljwfg n]vg sfo{df ;a}egbf a9l rrf{ ul/psf] / dxtjk"0f{ ljifo xf]. /fho k'gm;+/rgfdf blntsf cj:yffdf ;'wf/ Nofpgsf lgldt ljlegg ;f]rfosf ljsnkdf n]vfhf]vf u/]kl5 o; cfn]vn] /fho k'gm;+/rgf prr:t/lo ;'emfj cfof]usf] ;Nnfxdf ;xdt hgfo{ u}/ef}uf]lns k b]z g} blntsf] ljifo ;Daf]wg ug]{ ;a}egbf pqd ljsnk x'g] hfgsf/l u/fpsf] 5. o;sf k fb]lzs Joj:Yfflksf / sfo{kflnsf lgdf{0f ljlw klg oxff atfopsf] 5. o;df k fb]lzs ;efsf] u7g ug{sf nflu b'o{ ljsnk lbopsf] 5, blnt dtbftfx?sf alr k ToIf lgjf{rg jf If]qLo k b]zsf blntx?sf] ;d"xsf] lgjf{rg. o; cfn]vdf k fb]lzs sfo{kflnsf, Gofokflnsf tyf Joj:yflksfsf] sfd / st{jo klg pnn]v ul/psf] 5. k fb]lzs ;/sf/sf] Wofg lziff, ;fdflhs ljsf;, ;Lk ljsf;, :jf:yo, /f]huf/ ;[hgf, cfly{s cj;/x? / /fhgllts ;'b[9ls/0fdf s]lgb t x'g'kg]{ atfopsf] 5. cgtdf, /fho k'gm;+/rgf prr:t/lo ;'emfj cfof]usf] l;kmfl/;cg';f/ blntsf lgldt cfly{s, /fhgllts, ;f+:s[lts, lziff tyf ;fdflhs If]qdf ljz]if clwsf/df jsfnt u/l goff agg] ;+ljwfgdf o;nfo{ cfwf/e"t clwsf/ v08df /flvg'kg]{ pnn]v ul/psf] 5. ;+3Lo ;+/rgfdf cnk;+vos clwsf/sf] ;+/If0f @)

Annex Table-1 Poverty by Caste and Ethnicity Caste/Ethnicity Poverty Level, in percentage 1995/96 2003/04 2010/11 Brahmin/Chhetri 34 19 18 Terai Middle Caste 29 21 29 Newar 19 14 10 Hill Janjati 49 44 28 Terai Janjati 53 36 26 Dalits 59 47 42 Muslims 44 41 20 Nepal 42 31 25 Source: Nepal Living Standard Survey of 1995/96, 2003/04 and 2010/11 Annex Table-2: Human Development by Caste and Ethnicity, Nepal, 2006 Country/ Caste-Ethnicity Life Expectancy at Birth Adult Literacy Mean Years Per Capita Human of Schooling Income, Developme PPP Income nt Index in US $ Rank All 63.69 52.42 3.21 1597 0.509 All Brahman/Chhetri 62.95 63.65 4.40 2027 0.552 5 Hill Brahman 68.10 69.93 5.40 2395 0.612 3 Hill Chhetri 60.61 58.40 3.69 1736 0.514 9 Terai/MadheshBraman/Chhetri 63.89 83.80 6.40 2333 0.625 1 Terai/Madhesh Other Castes 61.26 27.32 1.21 743 0.450 15 All Dalits 61.03 38.02 1.73 977 0.424 18 Hill Dalits 60.89 45.50 2.07 1099 0.449 16 Newar 68.00 68.20 4.66 3097 0.616 2 All Janjati excluding Newar 62.91 51.67 2.96 1405 0.494 12 Hill Mountain Janjati 63.61 53.81 3.05 1490 0.507 11 Terai Janjati 61.55 48.11 2.81 1224 0.470 13 Muslim 60.99 30.32 1.60 890 0.401 19 All Janjati including Newar 63.33 53.52 3.14 1697 0.513 10 All Hill Mountain Group with Newar 63.12 58.47 3.67 1846 0.531 6 All Hill Mountain Groups without Newar 62.86 57.75 3.60 1699 0.523 8 All Terai/Madhesh Group with Muslim 57.61 42.34 2.37 1094 0.448 17 All TeraiMadheshGroups without Muslim 61.69 43.74 2.47 1143 0.455 14 Others 66.35 57.97 3.70 2227 0.559 4 Source: Nepal Human Development Report 2009 21 Minority Rights Protection in Federal System

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Annex Table-3: Involvement of Dalits in Lead Positions Particulars Year Dalit Mangol Maddhesi Newars Khas Total Judges in Supreme Court 1959 0 0 1 (10%) 1 (10%) 8 (80%) 10(100%) 1999 0 0 0 2 (11%) 16 (89%) 18 (100%) 2005 0 0 2 (13%) 2 (13%) 11 (74%) 15 (100%) Members of Council 1959 0 5 (26%) 3 (16%) 1 (6%) 10 (89%) 19 (100%) of Ministers 1999 0 4 (13%) 5 (16%) 3 (9%) 20 (62%) 32 (100%) 2005 0 1 (8%) 1 (8%) 2 (16%) 8 (68%) 12 (100%) Members in the 1959 0 21 (15%) 27 (19%) 10 (6%) 87 (67%) 145(100%) Parliament 1999 4 (2%) 36 (14%) 46 (16%) 20 (8%) 159(60%) 265(100%) Commissioners 1999 0 2 (8%) 3 (12%) 6 (24%) 14 (56%) 19 (100%) in Constitutional Bodies 2005 0 2 (12%) 1 (6%) 4 (23%) 10 (59%) 17 (100%) Administration 1959 0 7 (16%) 3 (7%) 5 (12%) 28 (65%) 43 (100%) (Secretary, 1999 0 1 (1%) 6 (5%) 13 (12%) 90 (82%) 110(100%) Chief District Officers) 2005 0 1 (3%) 1 (3%) 3 (9%) 28 (85%) 33 (100%) Source: Nepal Human Development Report 2009 Annex: Table-4: Representation of Various Communities in Civil Service: Officer Level - Based on Civil Service Records 2007 Communities Total No. of Officers Percentage Brahmans 4,721 58.31 Newars 1,152 14.23 Chhetris 1,080 13.34 Janjati (Other than Newar) 264 3.26 Madhesi, Muslim, Marwadi 805 9.94 Dalit 74* 0.92 Total 8,096 100.00 Source: Nepal Human Development Report 2009 * No special class, 3 in first class, 11 in second class, and 60 in third class Annex Table-5: Representation of Different Caste/Ethnic Groups in Parliament, Nepal during 1959-1999 Caste/Ethnicity 1959 1967 1978 1981 1986 1991 1994 1999 Brahman 30 (27.5) 30 (24.2) 27 (21.9) 14 (12.5) 23 (20.5) 77 (37.6) 86 (41.9) 77 (38.7) Chhetri 34 (31.2) 47 (37.9) 46 (37.4) 41 (36.6) 43 (38.4) 39 (19.0) 40 (19.5) 44 (22.1) Newar 4 (3.7) 15 (12.1) 10 (8.1) 9 (8.0) 7 (6.2) 14 (6.8) 13 (6.3) 14 (7.0) Janjati (except Newar) 21 (19.3) 21 (16.9) 28 (22.8) 36 (32.1) 29 (25.9) 48 (23.4) 38 (18.5) 35 (17.6) Terai High and Middle Castes 18(16.5) 11 (8.9) 11 (8.9) 10 (8.9) 10 (8.9) 21 (10.2) 24 (11.7) 27 (13.6) Muslim 2 (1.8) 0 1 (0.8) 2 (1.8) 0 5 (2.5) 4(2.0) 2(1.0) Dalits 0 0 0 0 0 1 (0.5) 0 0 Source: Nepal Human Development Report 2009 22 Minority Rights Protection in Federal System

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Annex: Table-6 Dalits in Central Committees of Major Political Parties, 2009 Caste/Social Group UCPN (M) NC UML MJF TMDP Hill Brahmin/ Chhetri 83 (60.14%) 41 (67.21%) 68 (58.62%) 2 (5.71%) 0 AdibasiJanjati 39 (28.26%) 13 (21.31%) 24 (20.68%) 0 0 Madhesi High and Middle Caste 10 (7.24%) 6 (9.83%) 16 (13.79%) 32 (91.42%) 52 (94.54%) Dalit 6 (4.34%) 1 (1.63%) 8 (6.89%) 1 (2.85%) 3 (5.45%) Total 138 (100%) 61 (100%) 116 (100%) 35 (100%) 55 (100%) Source: Nepal Human Development Report 2009 23 Minority Rights Protection in Federal System

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Ensuring the Rights of Minority Women through Positive Discrimination Mohna Ansari 8 1. Background Nepal is at a historical juncture of writing a new constitution by the peoples' representatives- through elected Constituent Assembly- first time in the history of modern Nepal. No doubt, it is passing through unprecedented transition. The new constitution is expected to end all forms of discrimination, oppression, inequality and exclusion based on caste, class, ethnicity, religion, language and SEX (gender). Nepali society has witnessed discrimination and exclusion of serious nature in past based on caste, ethnicity, religion, language and sex differences. The state promoted notion of "nationality" based on a particular dress, language, religion of a caste group imposed on minority caste groups created layers of discrimination and exclusion. The minority groups were forced either to adopt the identity of elite ruler caste groups or choose to be marginalized. Many such minority groups suffered severe marginalization and put their identity in crisis. The "unitary nature" of political state did not accept the diverse identity and rejected the idea of identity rights. Various indigenous groups including Tamang, Gurung, Rai, Limbu etc faced discrimination and exclusion in hills. Madheshi, Tharu, Muslim and lower caste groups in Terai suffered extreme exclusion. Dalits suffered severe form of suppression and exclusion both in hills and in Terai. Nepal has been a male dominated society of "patriarchal" values. Women, generally, enjoy a second class status to men, and have little participation in public activities. Situation of women from minority groups has been even worse in terms of participation and presence in political, cultural and economic activities. Nepal has a long history of political struggle and right movements from the time of Rana regime to date participated by people demanding "equal rights", "democracy", "inclusion" and "representation". Decade long people's war launched by Maoists was a period that ignited the "identity element" of political struggle. People's movement led by Seven Party Alliance (SPA) followed by Madhesh movement, adoption of peaceful politics by armed rebels and election of constituent assembly in 2008 found its ways to resolve the ethnic and identity demands and aspirations through a peaceful means of drafting new constitution. The mixed electoral system, first time adopted in Nepal for CA election, can be termed as a best example of affirmative action that ensured remarkably inclusive and representative Constituent Assembly. Total 197 women from several caste groups and remote regions were elected in the CA. Work of several NGOs/INGOs at community level implementing educational and awareness programs, formation of community organizations, increase in media and public information and open political environment after restoration of democracy in 1990 had created an awareness and understanding about the rights and equality in most marginalized community groups of Madheshi, Dalits, Muslim, women, indigenous and other minority groups, thus laying the foundation for uprising of identity movement. 8 A locally well-known rights activist, and Nepal's only woman lawyer from the Muslim community. She has worked with various national and international organizations in the area of women rights, justice and equality. She is currently a Member of the National Women Commission in Nepal. 24 Minority Rights Protection in Federal System

;sf/ftds lje]båf/f cnk;+vos dlxnf clwsf/sf] ;'lglzrttf df]xgf cg;f/l *!= k[i7e"ld g]kfndf hgk ltlglwx?n] ;+ljwfg ;efaf6 goff ;+ljwfg n]vgsf] P]ltxfl;s sfo{ ;'? u/]sf 5g\. o;sf] ;+qmd0fsfn lgs} nfdf] cjlw;dd rln/x]s]f 5. goff ;+ljwfgn] hft, ju{, wd{, efiff / lnª\usf cfwf/df x'g] u/]sf x/]s lsl;dsf] lje]b, ;fdgtl ;+:sf/, c;dfgtf / lgif]wk"0f{ Joj:yfsf] cgto ug]{ ljzjf; ul/psf] 5. g]kfnl ;dfhdf hft, ju{, wd{, efiff / lnª\usf cfwf/df x'g]u/]sf lje]b / lgif]wk"0f{ ;+:sf/sf qm'/?k b]vg ;lsg5. d'n'sn] s]xl hftlo ;d'bfosf ljz]if klx/g, efiff, wd{nfo{ /fli6«otf;fu hf]8\g] sfd u/]sfn] cnk;+vos hftlo ;d"xk lt lje]b / agb]h ;[hgf epsf] kfog5. cnk;+vos ;d"xsf ;fd" prr hftlo ;d'bfosf] klxrfg cfufng] jf ;LdfGts[t eo{ affrg] b'o6f dfq ljsnk v8f x'g5. o:tf s}of}+ cnk;+vos ;d"xx?n] cfkm\gf] klxrfg e'n]/ ;LdfGts[t x'g'k/]sf] 5. /fhgllts?kdf /fhon] PsfTds zf;g Joj:yfsf] cg'z/0f ubf{ ljljw klxrfgo'qm 7"nf] ;d'bfonfo{ la:of]{, klxrfgdf cfwfl/t clwsf/sf] l;4fgt kfngf u/]g. ljlegg cflbjf;l ;d"x h:t} tfdfª, u'?ë, /fo{, lnda" cflbn] kxf8l If]qdf lje]b / agb]h ;xg' k/]sf] 5eg] dw]zl, yf?, d'l:nd / tnnf] hfltdf ugtl x'g] cgo ;d'bfon] agb]hsf] k/fsfi6f / ;Ldf v]kg'k/]s]f 5. blntx?n] eg] b'j} kxf8 tyf t/fo{df zf]if0f / agb]h ;xg'k/sf] 5. g]kfn k'?ifk wfg dfgotfaf6 u l;t d'n's xf], dlxnfnfo{ bf]; f] bhf{sf] gful/ssf x]l/g5 / ;fj{hlgs sfo{qmdx?df gfd dfqsf] ;xeflutf u/fog5. cnk;+vos ;d"xsf dlxnfsf] /fhgllts, ;f+:s[lts tyf cfly{s sfo{qmdx?df emg\ Go"g ;xeflutf /x]sf] kfog5. g]kfndf nfdf] ;dob]lv /fhgllts cl:y/tf 5, o;n] ubf{ clwsf/sf nflu ;+3if{x? epsf 5g\. o;df /f0ff zf;gaf6 d'lqmb]lv hgtfn] ;dfg clwsf/, k hftgq, ;dfj]lztf / k ltlglwtjsf lgldt epsf n8fof{+ k d'v 5g\. dfcf]jfbln] ;'? u/]sf] Ps bzs nfdf] hgo'4n] /fhgllts n8fo{+df klxrfgnfo{ k fyldstfsf ;fy p7fof]. ;ft kf6l{ ;d"xsf] cu'jfodf epsf] hgcfgbf]ngkl5sf] dw]z cfgbf]ng, ;z:q ;d"xåf/f /fhglltdf k j]z / @)^$ ;fndf ;DkGg ;+ljwfg ;efsf] r'gfjn] ljlegg ju{åf/f p7fopsf] klxrfgsf] dfu tyf rfxgfnfo{ cl3;f/]sf 5g\. ol dfu / rfxgf k"lt{sf nflu goff ;+ljwfg e/kbf]{ cfwf/ agg] ljzjf; ul/psf] 5. g]kfndf ;+ljwfg ;efsf nflu klxnf] k6s ldl>t r'gfjl Joj:yf ckgfopsf] lyof] h;nfo{ ;+ljwfg ;efdf ;dfj]zl / k ltlglwtjsf] ;'lglzrttfsf lgldt ;'wf/ sfo{qmdsf] pko'qm pbfx/0f dfgg ;lsg5. ;+ljwfg ;efdf ljlegg ;d"x tyf b'u{d If]qaf6 hddf!(& hgf dlxnf r'lgpsf lyp. @)$& ;fndf k hftgqsf] k'gm:yfkgfkzrft\ ljlegg ;/sf/l tyf u}/;/sf/l ;+:yfgn] ;fd'bflos txdf lziff tyf ;r]t sfo{qmdsf] sfof{gjog, ;fd'bflos ;+u7gsf] lgdf{0f, ;~rf/ tyf gful/ssf] ;"rgfdf j[l4 / v'nf /fhgllts jftfj/0fsf] ;[hgfsf sfo{qmdn] w]/} ;LdfGts[t ;d"x h:t} dw]zl, blnt, d'l:nd, dlxnf, cflbjf;l / cgo cnk;+vosdf ;r]tgf a9fpsf] 5. klxrfgsf nflu cfgbf]ng eps} sf/0f To;n] ;kmntf xfl;n u/]sf] oxff pnn]vo x'g cfpf5. * :yfglo?kdf ;'kl/lrt dlxnf clwsf/sdl{ tyf g]kfnl O:nflds ;d'bfosl PSnL dlxnf clwjqmf. dlxnf clwsf/, Gofo tyf ;dfgtfsf nflu w]/} :jb]zl tyf ljb]zl ;+:yfx?;fu ;xsfo{ ub}{ pxffn] sfd ug'{epsf] 5. xfn pxff /fli6«o dlxnf cfof]u g]kfnsf ;b:o x'g'x'g5. ;+3Lo ;+/rgfdf cnk;+vos clwsf/sf] ;+/If0f @$

2. Status of women in Nepal As said above, women in Nepal enjoy secondary status to men in almost every community and experience exclusion, discrimination and suppression just for being women. Level of discrimination and exclusion may differ from community to community though. Because of the patriarchal values, man is the leader of the family and woman is the subordinate. Men of the family make decisions, exercise authority, control resources and take lead in all matters within household as well as outside. The women are confined mostly at home and take care of cooking, cleaning, fetching fodder and water, rearing children and taking care of male members of family. Social, traditional and religious practices place the men at superior level to women. As a result, women's education, health and development are neglected, while men have better opportunity of education, food and care in all sense. Weak status of women makes them vulnerable to sexual abuse, rape and gender based violence. About 7000 girls and children are trafficked from Nepal each year for forced prostitution and there are almost 200,000 commercial sex workers in India alone (Kathmandu Post, 24 July, 2001). The Demographic Health Survey (DHS 2011) reveals several facts on violence against women. At least one in three (34%) women age of 15-49 years have ever experienced physical violence since age 15 years and 9% of these women reported experiencing physical violence within the past 12 months. Rural women are more likely to have ever experienced physical violence than urban women (35% compared with 29%). Women in the Terai are more likely to experience physical violence than women in the other zones. The proportion of women who have ever experienced physical violence is highest among women with no education (51%). As women attain higher levels of education their chances of experiencing physical violence declines; 15 percent of women with SLC and higher levels of education had ever experienced physical violence. Though women's population is slightly bigger than men (51.7%, Census 2011), they are acutely underrepresented in political appointments, judiciary, diplomatic assignments, commissions, councils, academies, bureaucracy, army, police, technical field, education and all other sectors. According to CEDAW 2002, women make only 8.5% of the 93,716 civil services posts. Majority of them are at lower level and come from upper cast groups. Women's literacy rate was 43% compared to men who were 65% literate in 2001 (census 2001). In 2007, the reinstated parliament passed a resolution to include at least 33% women in all state organs. However; several governments formed since then failed to fulfill the commitment. The number of women incumbent as ministers in those governments has been very small. Minister for Women, Children and Social Welfare has always been a man except once when a woman, Jaya Puri Gharti Magar, was appointed in the post. She, however, rejected the appointment raising concern over fair representation of women in the cabinet. 3. Women and politics Nepal has a long history of political struggle and movement. Women have taken part in these movements and have made significant contributions right from beginning when people and political parties were struggling to end the autocratic rule of Rana regime in 1950. Female leaders like Mangala Devi Singh, Sahana Pradhan, Shaileja Acharya and many other took active part in political struggle against Panchayat regime from 1960 to 1990. There was overwhelming participation of women in people's movement I (1990) and people's movement II (2006) that ended all form of autocracy and set ground for republic federal Nepal. 25 Minority Rights Protection in Federal System

@= g]kfndf dlxnfsf] cj:yf dfly pnn]v epem}+ g]kfnsf k fom ;Dk"0f{ ;d'bfodf dlxnfsf] :yfg k'?ifsf] bffhf]df k'ug;s]sf] 5}g. dlxnfdfly k i6 lje]b 5. pglx?n] agb]h ;xg'k/]sf] 5 eg] lyrf]ldrf]] Joxf]g'{ k/]sf] 5. pglx?df x'g] u/]sf] lje]b / agb]hsf] :t/ ;d'bfolkr5] km/s kfog5. k'?ifk wfg dfgotfn] k'?ifnfo{ kl/jf/sf] 6fpsf] dfg5 eg] dlxnf s]an ;xof]uldf ;Lldt x'g5]. kl/jf/sf x/]s leql Pj+ afxo s'/fdf k'?ifn] clvtof/ pkof]u u5{, ; f]t ;fwgdf lgogq0f ug'{sf ;fy} lg0f{o ug]{ clwsf/ klg p;}n] lgogq0fdf lng5. dlxnfx? k fom efg5f sf]7f, ;/;kmfo, vfgf / kfglsf] k agw, afnarrfsf] kfngkf]if0f / kl/jf/df k'?if ;b:osf] x]/rfx ug]{ sfddf ;Lldt x'g5g\. ;fdflhs, k/dk/fut Pj+ wfld{s ceof;n] klg k'?ifnfo{ dlxnfsf] egbf prr cfxf]bf k bfg ub{5. o;sf sf/0f dlxnfsf] lziff, :jf:yo / ljsf;df Wofg k'u]sf] 5}g hals k'?ifx?nfo{ lziff, vfgf / x]/rfxsf] /fd f] cj;/ k fkt x'g5. dlxnfx?sf] oxl cj:yfsf sf/0f pglx? of}g zf]if0f, anftsf/ / n}lës lx+;fsf lzsf/ x'g5g\. g]kfnaf6 x/]s jif{ sl/a & xhf/ dlxnf tyf afnaflnsf of}g Jofkf/sf nflu a]rlavgdf kg]{ u/]]sf 5g\ eg] ef/tdf dfq @ nfv g]kfnl of}gsdl{ /x]sf] -sf7df8f}+ kf]i6, @)%* c;f/_ pnn]v 5. hg;+vof :jf:yo ;j]{if0f -8LPrP; @)^*_ n] dlxnfdf epsf lx+;fsf] tyo ;fj{hlgs u/]sf] 5. tlg dlxnfdf sd;]sd Ps -#$ k ltzt_ dlxnfn]!% jif{sf] pd]/b]lv $( jif{sf] pd]/;dd Psrf]l6 zf/ll/s lx+;f ;fdgf ug'{k/]sf] / ( k ltzt dlxnfn] kl5nnf]!@ dlxgfdf Psrf]l6 zf/ll/s lx+;f v]kg'k/]sf] 5. b'u{d If]qsf dlxnfn] -#% k ltzt_ zx/l If]qsf dlxnfn] -@( k ltzt_ egbf a9l zf]if0f ;xg'k/]sf] 5. t/fo{sf dlxnf cgo If]qsf dlxnfegbf a9l zf/ll/s lx+;fdf kg]{ ;Defjgf /x]sf] 5. hljgdf sdtldf Ps k6s zf/ll/s lx+;faf6 kll8t epsf dlxnfx? dwo lziffaf6 jl~rt epsf dlxnfx?sf] cg'kft %! k ltzt /x]sf] 5. prr lziff k fkt u/]sf dlxnfx? o; k sf/sf] vt/fdf kg]{ ;Defjgf sd /xg5. P;Pn;L jf ;f]egbf dflysf] k9fo u/]sf dlxnfx?df s]an!% k ltzt dfq zf/ll/s lx+;fsf] lzsf/ epsf] kfopsf] 5. hgu0fgf @)^* sf cg';f/ dlxnfsf] ;+Vof k'?ifsf] egbf a9l /x]sf] 5. pglx?sf] ;+Vof %!=& k ltzt /x]sf] eptfklg /fhgllts lgo'lqm, Gofokflnsf, s"6gllts sfo{, cfof]u, kl/ifb\, sd{rf/l, ;}lgs, k x/l, k fljlws If]q, lziff / cgo If]qdf lgs} sd k ltlglwtj epsf] kfopsf] 5. l;8ú sf cg';f/ (#,&!^ gful/s sd{rf/lx?df dlxnfsf] ;+Vof *=% k ltzt /x]sf] 5. pglx?sf] k ltlglwtj Go"g t 5 g}, To;df klg tyfslyt tnnf] hftlsf dlxnfsf] ;+Vof lgs} lrgtfhgs cj:yfdf 5. csf]{ zjbdf tyfslyt dflynnf] hftlo ;d"xaf6 epsf] lje]bk"0f{ Jojxf/sf sf/0f of] cj:yf l;h{gf epsf] xf]. @)%* ;fnsf] hgu0fgfcg';f/ dlxnfsf] ;fif/tf $# k ltzt / k'?ifsf] ;fif/tf ^% k ltzt /x]sf] 5. @)^$ ;fndf k'gm:yflkt ;+;b\n] /fhosf] x/]s c+udf dlxnfsf] ## k ltztn] ;xeflutf x'g'kg]{ lgod agfpsf] lyof]. To;kZrft\ ag]sf s}of}+ ;/sf/n] o; Joj:yfnfO{ sfof{gjogdf Nofpg eg] ;kmn x'g;s]gg\. tl ;/sf/df dlxnf dgqlsf] ;+Vof lgs} sd /x]sf] b]lvof]. dlxnf, afnaflnsf tyf ;dfh snof0f dgqlsf] lhdd]af/l Ps k6s hok'/l 3tL{ du/n] ;DxfNg' epsf] ckjfbnfo{ la;{g] xf] eg] ToxfF ;w}+ k'?ifs} jr{:j b]lvg] 5. #= dlxnf / /fhgllt g]kfndf nfdf] ;dob]lvsf] /fhgllts ;+3if{ / cfgbf]ngsf] Oltxf; /x]sf] 5. dlxnfx?n] klg x/]s cfgbf]ngdf of]ubfg lbpsf 5g\. @))& ;fndf hxflgof /f0ff zf;g lj?4sf] ;+3if{df klg klxnfsf] ;lqmotf k i6 b]lvg5. dlxnf g]tf, h:t} d+unfb]jl l;+x, ;fxgf k wfg, z}nhf cfrfo{ / cgon] k~rfot Joj:yflj?4 @)!& b]lv @)$& ;Dd ;lqmo e"lds lgjf{x u/]. ;fdgtl zf;gsf] cgto / ;+3Lo u0ftflgqs g]kfn lgdf{0fsf] husf]?kdf dflgpsf] klxnf] hgcfgbf]ng @)$& / bf]; f] hgcfgbf]ng @)^# df dlxnfsf] ;xeflutf ctolws dfqfdf /x]sf] lyof]. ;+3Lo ;+/rgfdf cnk;+vos clwsf/sf] ;+/If0f @%

There was also significant involvement of women in armed struggle launched by Maoists from 1995 to 2006. Women make almost 30% of Peoples Liberation Army (PLA) and most of them come from minority groups of indigenous people and from remote regions. Women's contributions are not limited to this, but to other political and right movements, be it ongoing Dalit movement since decades or Madheshi uprising in 2008. Women from all walks of life, student to house wives, professional to employees and NGO workers to activists have always made their presence noted in political movement. However, when it comes to yield the dividend, women's interest has always been neglected and contributions forgotten. The inclusion and participation of women in state organs and mechanism at decision making level has been very low, and almost nominal in case of women from minority groups such as Dalit, Muslim, Madheshi and indigenous people. There was little women representation in elected bodies of parliament (upper house and lower house) and Village Development Committees (VDC) during several elections from 1990 to 1999. And there were no women elected as City Mayor or Chair of District Development Committee Interim parliament in 2007 passed a resolution to include at least 33% women in all state organs. However, there is little commitment seen in political parties to fulfill this promise. In fact, the political parties themselves have not been able to make their institution inclusive. No major political party has had more than 3-5 women at its central committee. The election of constituent assembly can be termed as the most significant achievement that elected 197 women coming from diverse ethnic cultures, tradition, group and geographical areas. It was made possible due to the mixed electoral system of First Past the Post (FTFP) and Proportional Representation (PR) provision of the electoral system in Nepal. However, the same spirit of inclusion was not seen to continue while forming governments and making political appointments. Several ministerial appointments after 2008 did not include women in fair number. Peace process related structures such as Special Committee and its Secretariat for integration and rehabilitation of Maoists army combatants didn't include women contrast to the fact that 30% of this group is formed of women. The exclusion continues in appointment of diplomats, various commissions, public corporations, judges, institutes and many other sectors. 4. Provisions for women- Analysis of benefit It is not that there have not been attempts, and provisions to increase women's participation at all level, to achieve gender parity and to empower women through special programs. Implementation and effectiveness of such provisions have not been great due to weak monitoring and evaluation as well as policy flaws. Women from minority groups have been mostly deprived from accessing the state services and rights due to their poverty, un-education, social/cultural barriers and lack of support. State did not adopt an approach to effectively promote the inclusion and protection of women from minority groups. As a result, the provisions for women largely remained for the benefit of women from upper caste group, urban and elite class. In fact, men of this group used the provisions to benefit their own wives and daughters in the name of women's inclusion doubling their control to state organs and services while large section of women from minority groups never witness any benefit. Several articles of Interim Constitution 2007 provide basis for promoting, protecting and including women's rights and end gender based discrimination. Some articles are as follows; 26 Minority Rights Protection in Federal System

dfcf]jfbln] u/]sf] @)%@ b]lv @)^# ;Ddsf] ;z:q ;+3if{df klg dlxnfsf] ;xeflutf 7"nf] ;+Vofdf /x]sf] lyof]. hgd'lqm ;]gfdf #) k ltzt dlxnf /x]sf 5g\ h;df hghflt tyf cgo If]qsf cnk;+vosx?sf] ;+Vof clws 5. dlxnfx?sf] of]ubfg bzs k'/fgf] blnt cfgbf]ng jf @)^% sf] dw]zl cfgbf]ng b'j}df ;/fxgf of]uo /x]sf] 5. /fhgllts cfgbf]ngdf hljgsf x/]s kf6faf6 dlxnfsf] ;xeflutf epsf] kfog5 h;df labfyl{, u[x0fl, OndL, sd{rf/l, u}/;/sf/l ;+:yfgdf cfa4 JolQm / sfo{stf{x? kb{5g\. t/ k ltkmn ljt/0f ug]{ ;dodf eg] dlxnfsf rfxgfk lt ;w}+ a]jf:tf ul/g5 / of]ubfgnfo{ lal;{g] ul/psf] 5. /fhosf c+ux?df tyf lg0ff{os txdf dlxnfsf] ;dfj]lztf / ;xeflutf sd /x]sf] 5 eg] cnk;+vos ;d"x h:t} blnt, d'l:nd, dw];l / hghflt dlxnfsf] t gu0o a/fa/ g} 5. ;+;b\sf] dflynnf] tyf tnnf] ;ef, @)$& ;fnb]lv @)%^ ;Dd epsf :yfglo lgjf{rgdf dlxnfsf] ;+Vof ;Gtf]ifhgs 5}g. gu/sf d]o/ jf lhlj;df dlxnf g]t[tj lgo'qm epgg\. @)^# ;fnsf] cgtl/d ;+ljwfgn] /fhosf] c+udf ## k ltzt dlxnfsf] k ltlglwtj x'g'kg]{ lgod agfpsf] 5. o; Joj:yfsf afjh'b klg /fhgllts kf6l{x?n] cfzftlt sfd ug{ ;s]sf 5}gg\. jf:tljs s'/f s] xf] eg] kf6l{x? cfkm\gf ;+:yfdf ;dfj]lztf sfod ug{ cifd epsf 5g\. s'g} klg /fhgllts kf6l{sf] s]gb Lo ;ldltdf # b]lv % k ltztegbf a9l dlxnf ;xeflutf 5}g. ;+ljwfg ;efsf] lgjf{rgaf6!(& dlxnf, hf] ljlegg hft, ;+:s[lt, k/kk/f, ;d"x / e"uf]nsf] k ltlglwtj u5{g\, 5flgP. g]kfnsf ;Gbe{df of] lgs} dxtjk"0f{ 36gf dflgg5. g]kfndf klxnf] k6s Pkmlkl6lk / lkcf/ lgjf{rg k4ltsf] k of]u u/l cyf{t ldl>t lgjf{rg k 0ffnL ckfgfopsf sf/0f dlxnfsf] o; k sf/sf] k ltlglwtj ;Dej epsf] xf]. t/ ;/sf/ lgdf{0f / /fhgllts lgo'lqmdf ;f]xl lsl;dsf] efjgf k :t't x'g ;s]g. @)^% ;fnkl5sf dgql kbdf dlxnfsf] lgo'lqm pko'qm 9+un] x'g ;s]s]f 5}g. zflgt sfod ug]{ qmddf dfcf]jfbl ;]gfsf n8fs'x? h;df #) k ltzt dlxnf /x]sf 5g\, ltglx?sf] k'gm:yfkgf tyf ;'wf/sf lgldt ul7t ;ldlt / To;sf] ;lrjfnodf dlxnfsf] ;xeflutf b]lv+b}g. dlxnfnfo{ s"6gllts cfof]u, ;fj{hlgs ;+:yfg, GofofwLz, ;+u7g tyf cgo If]qsf] lgo'lqmaf6 jl~rt ug]{ sfo{ eo/x]s]f 5. $= dlxnfsf nflu Joj:Yff / k fyldstf ljzn]if0f /fhosf] x/]s txdf dlxnf ;xeflutfdf j[l4 u/l n}lës ;dfgtf Nofpg] / ljz]if sfo{qmd cfof]hgf u/l dlxnfsf] l:yltdf ;'wf/ Nofpg] k of; gepsf] eg] xf]og. k efjsf/l sfof{gjog x'g g;sgfn] o:tf sfo{qmdsf] ;fy{stf eg] /x]g. glltut sdhf]/l, q'l6k"0f{ cg'udg tyf d"nof+sg o;sf] sf/0fsf?kdf b]lvg5. cnk;+vos ;d"xsf dlxnf k foh;f] /fhosf] ;]jf / clwsf/af6 jl~rt 5g\ lsgls ul/al, lziffsf] sdl, ;fdflhs / ;f+:s[lts kl/lw tyf ;xof]usf] cefj k[i7e"ldsf sf/0f x'g\. o;sf/0f dlxnfsf lgldt agfopsf Joj:yfn] prr hft dflgg] ;d"xsf, zx/l tyf dflynnf ju{sf dlxnfsf] dfq ptyfg ug{ ;Ifd eof]. jf:tjdf ol ;d"xsf k'?ifn] cfkm\gf gftfuf]tfdf kg]{ dlxnfnfo{ ;'ljwf k bfg u/l /fhosf c+u tyf ;]jfdf cfkm\gf] Psflwsf/ hdfpg] k of; u/]. hals cnk;+vos dlxnfx?n] s'g} ;'ljwf pkef]u ug{ kfpgg\. cgtl/d ;+ljwfg @)^# sf sltko wf/fdf dlxnf clwsf/nfo{ k fyldstf lbpsf] b]lvg5. pgx?sf] ;'/Iff / ;dfj]lztfsf ;Gbe{ p7fpfb} n}lëu lje]bsf] cgt ug]{ s'/f pnn]v epsf] 5. s]xl wf/fx? tn pnn]v ul/psf 5g\ M ;+3Lo ;+/rgfdf cnk;+vos clwsf/sf] ;+/If0f @^

= Article 13 Rights to Equity (2) - No discrimination shall be made against any citizen in the application of general laws on grounds of religion, race, sex, caste, tribe, origin, language or ideological conviction or any of these. = Article 20 Right of Woman - no one shall be discriminated in any form merely for being a woman = Article 21 (1) - Women, Dalit, indigenous tribes, Madheshi community, oppressed group, poor peasant, and laborers who are economically, socially and educationally backward shall have the right to participated in the state mechanism on the basis of proportional inclusive principles. Apart from the constitutional provisions, there are number of institutions created for women's empowerment, protection and inclusion. Ministry of Women Children and Social Welfare (MWCS) was created to look in to the issue of women's development in 1995 following the Beijing summit on women's rights. The Ministry is mandated to formulate and implement plans and policies for women's over all development, conduct studies and research, and coordinating national and international support concerning women issues and developing women's protection strategies. National Women Commission (NWC) was created by an executive decision in 2002 and is mandated to monitor/investigate cases of violence against women (VAW), provide legal aid to victims, monitor state obligation under CEDAW reporting, coordinate for mainstreaming gender policies in all sector and conduct research/studies to provide policy input at various levels. However, these institutions seriously lack capacity and resources. Appointments in five member body of NWC were made mandatory to be inclusive only in 2007. A woman minister is rarely appointed in MWCS. Reserved quota for women in Government and non-government sector remains limited to women from upper caste, urban area and elite class as policies and programs fail to target women from minority groups. Non-governmental sectors such as NGO, INGOs, financial institutes, private companies and commercial sectors have adopted some level of inclusion of women. However; women of minority groups rarely get advantage of such situation. It's obvious that women from minority groups would remain deprived and disadvantaged until special efforts are made to include them in state organs and institutions. State must introduce affirmative measures to end further exclusion of women from minority groups. 5. Nepal: Identifying the Minority Women According to Encyclopedia Britannica 2008, minority group is a culturally, ethnically, or racially distinct group that coexists with but is subordinate to a more dominant group. As the term is used in the social sciences, this order of subordination is the main determinant factor to define characteristic of a minority group. As such, minority status does not necessarily correlate to population. Women, who also make larger population than men in Nepal, are still minority due to their subordination status in comparison to men. While women as a whole are minority, there are women from other minority groups who suffer relatively higher degree of exclusion and discrimination. A minority may disappear from a society via assimilation, a process through which a minority group replaces its traditions with those of the dominant culture. However, complete assimilation is rare. Nepal is a country of minorities, with communities of multiple identities in some cases that re-align with each other through sharing of common language, religion, ethnicity, culture, sex and territory. There are at least 102 caste and ethnic groups, 92 linguistic groups, 59 Madheshi groups, 22 Dalit groups and 11 religious groups identified for now. 27 Minority Rights Protection in Federal System

wf/f!#, ;dfgtfsf] xs -@_ M ;fdfgo sfg'gsf] k of]udf s'g} klg gful/sdfly wd{, j0f{, lnª\u, hft, hflt, ptklq, efif jf a}rfl/s cf:yfdf tldwo] s'g} s'/fsf] cfwf/df e]befj ul/g] 5}g. wf/f @), dlxnfsf] clwsf/ M s'g} gful/snfo{ dlxnf epsf sf/0f s'g} k sf/sf] lje]b ug{ kfog] 5}g. wf/f @!, ;fdflhs Gofosf] xsm cfly{s, ;fdflhs jf z}lifs b[li6n] kl5 k/]sf dlxnf, blnt, cflbjf;l hghflt, dw]zl ;d'bfo, ptkll8t ju{, u/lj ls;f / dhb'/nfo{ ;dfg'kflts ;dfj]zl l;4fgtsf] cfwf/df /fhosf ;+/rfdf ;xeful x'g] xs x'g]5. ;+j}wflgs k fjwfgafx]s sltko ;+:yfx? dlxnf ;'b[9ls/0f, ;'/Iff tyf ;dfj]lztfsf lgldt lgdf{0f ul/psf 5g\. dlxnf, afnaflnsf tyf ;dfh snof0f dgqfnosf] :yfkgf @)%@ ;fndf dlxnfsf clwsf/af/] a]olhªdf epsf] 5nkmnkZrft\ epsf] lyof]. o; dgqfnosf] k d'v sfo{df dlxnfsf] ljsf;sf lgldt gllt tyf sfo{qmd agfpg] / sfof{gjog u/fpg], cwoog tyf vf]h u/fpg] / dlxnf ;'/Iff /0fgLlt tof/ kfg]{ xf]. /fli6«o dlxnf cfof]usf] :yfkgf @)%( df dlgqkl/ifb\sf] lg0f{ocg';f/ epsf] xf]. dlxnflj?4 epsf lx+;fsf 36gfsf] txlssft ug{', kll8tnfo{ /fo ;'emfj lbg', /fhoåf/f tof/ kfl/psf] l;8ú k ltj]bgsf] cg'udg u/l bflotj k"/f ug{ ;3fpg', n}lës glltnfo{ x/]s If]qdf nfu' ug{] / ljlegg txdf gllt lgdf{0fsf nflu cfjzos cwoog tyf cg';gwfg ug{'cflb o;sf p2]zo /x]sf 5g\. t/ cfof]udf Ifdtf / ; f]tsf] lgs} sdl /x]sf] 5. /fli6«o dlxnf cfof]usf] kffr ;b:o zfvfsf] ;+nugtfsf] clgjfo{tf @)^$ ;fndf dfq nfu' ul/psf] xf]. dlxnf, afnaflnsf tyf ;dfh snof0f dgqfnodf dlxnf dgqlsf] lgo'lqm lgs} sd x'g] ub{5. ;/sf/l tyf u}/;/sf/l If]qdf dlxnf l;6sf] Joj:yf s]an prr ju{, zx/l If]q / u0odfgo kl/jf/sf dlxnfsf lgldt dfq ;fljt epsf] 5. o;sf] sf/0f gllt / sfo{qmdn] cnk;+vos ;d"xsf dlxnfdf Wofg lbg g;sg' g} xf]. u}/;/sf/l If]q h:t} u}/;/sf/l ;+:yf, cgt/f{li6«o u}/;/sf/l ;+:yf, jfl0fho ;+:yf, JolQmut sdkgl / ljqlo ;+:yfx?n] dlxnfnfo{ ;dfj]z u/fpg] Joj:yf u/]sf 5g\. o; lsl;dsf] Joj:yfn] cnk;+vos ;d'bfosf dlxnfn] ;xof]u k' ofpg sd} dfq ;kmn x'g5. Ps a}+sn] dlxnfsf] ;+nugtf ;'lglzrt u/fpg] k of;df u/]sf] hflu/sf] cj;/df!) hgf dlxnfdwo] ( hgf prr ju{sf dlxnf /x]sf lyp -Ps klqsfsf cg';f/_. cnk;+vos ;d'bfosf dlxnf cj;/af6 jl~rt g} /xg]5g\ ha;dd /fhosf c+u / ;+:yfgdf pglx?sf lgldt ljz]if k of;sf] yfngl x'fb}g. /fhon] ;'wf/sf sfo{qmd cufl8 a9fp/ cnk;+vos ;d"xsf dlxnfsf clwsf/ ;'lglzrt ug'{ h?/l b]lvg5. %= g]kfndf cnk;+vos dlxnfsf] klxrfg la 6flgsf ljzjsf]if @)^% sf cg';f/ cnk;+vos ;d"x eg]sf] ;f+:s[lts, hfltljz]if tyf jul{o?kdf k[ys ;d"x xf] hf] k efjdf /x]sf ;d"xsf] cwlg:y /xg5. ;fdflhs cwoogdf pnn]v epem}+ c?sf] cwlg:y x'g' g} cnk;+vos ;d"xsf] kl/roftds u'0f xf]. cnk;+vossf] cj:yf hg;+vofsf] cfwf/af6 dfq x'g] eg] xf]og. g]kfndf k'?ifsf] bffhf]df dlxnfsf] ;+Vof a9l /x]sf] eptfklg pglx? k'?ifsf] cwlg:y 5g\. ;Dk"0f{ dlxnfsf] cj:yf cnk;+vossf] /x] tfklg cgo cnk;+vos ;d"xsf dlxnfx?n] eg] cem a9l lje]lbt / jl~rt x'g'k/]sf] 5. s'g} ;dfhaf6 cnk;+vossf] cj:yfdf ;'wf/ Nofpg] pkfo ;dfj]zls/0f dfq xf]. o; k lqmofg';f/ cnk;+vos ;d"xn] s;}sf] cflwkto :jlsf/ ug]{ ;+:s[ltnfo{ x6fpfb} nu]/ cfk"mnfo{ cftdlge{/ / :jtgq agfpf5g\. t/ k"0f{ ;dfgtfsf] cj:yf sd} dfq x'g;s5. g]kfndf s}of}+ cnk;+vosx? 5g\, tl ;d'bfodf ljlegg klxrfg af]s]sf ;d"xx? 5g\ / s'g} ;d"xn] Ps} efiff, wd{, hftlotf, ;+:s[lt, lnª\u / If]qsf] k ltlglwtj ug{;s5. g]kfndf hddf!)@ hflt / jul{o ;d"x, (@ eflifs ;d"x, %( dw]zl ;d"x, @@ blnt ;d"x /!! wfld{s ;d"xsf] klxrfg epsf] 5. ;+3Lo ;+/rgfdf cnk;+vos clwsf/sf] ;+/If0f @&

More identity groups are yet to emerge in days to come either by identification of new groups or by division of different identities within an identity. 9 For example, among the total Madheshi population, only 59 caste/ethnic groups have been identified so far. Among these, several groups form less that 2% of the total Madheshi population such as Sonar (1.99%), Kewat(1.88%), Brahman (1.85%), Baniya (1.74%), Mallah (1.60%), Kalwar (1.59%), Hajam/Thakur (1.35%),Kanu (1.35%), Rajbanshi (1.32%), Sudi (1.24%), Lohar (1.14%), Tatma (1.05%), Khatwe (1.03%) and Dhobi (1.01%). Those Madheshi caste/ethnic groups whose share is less than 1% in Terai constitutenuniya, Kumhar, Danuwar, Haluwai, Rajput, Kayastha, Badhae, Santhal/Sattar, Jhangar/Dhagar, Bantar,Barae, Kahar, Gangai, Lodha, Rajbhar, Bin/Binda, Bhediyar/Gaderi, Nurang, Tajpuriya, Chidimar, Mali,Bengali, Dom, Kamar, Meche, Halkhor, Punjabi/Sikh, Kisan, Koche, Dhuniya, Jaine and Munda,Kuswadiya/Patharkata. Same is the situation of various castes, linguistic and religious minority groups in other parts of Nepal. While these minority groups are vulnerable to exclusion and marginalization in general, the women who are also members of minority or indigenous communities are particularly marginalized. Compared to male members of minority and indigenous communities, women lack access to political power and face more discrimination in their access to services and rights. Though Nepalese women in general are victims of gender discrimination the nature, forms, degree and intensity differs among different caste/ethnic, religious and cultural groups. Therefore, women of minority groups are victimized more than other women. While several backward and dalit communities in hills and plains are in acute minority, there are indigenous groups such as Raute, Kusunda, Chepang and many others that are at the brink of extinct. Apart from these, there are newly emerging groups such sexuality based minority groups of transgender or homosexuals or religious minority groups such as nature worshippers. The group of handicapped or differently abled people may be termed as another minority group. Muslims and Tharu form a sizable minority with specific religious and cultural identity among many others. In this context, it is becomes more vital to embed proper measures in the new constitution to prevent further marginalization and victimization of such minority groups through affirmative action. Any blanket approach to govern the population after federalism would fail to deliver social justice to all population. Thus, risk of marginalization and discrimination to minorities groups and, women from minority groups would be high. 6. Analysis of causes for exclusion in Nepal Women from minority groups in Nepal suffered exclusion and discrimination, and in some cases exploitation. They faced denial of rights and participation in social public activities for example many Tharu girls ended up their lives working as bonded slave known as "kamlari" in the houses of upper cast people. There are number of elements that profunded practice of exclusion in Nepalese society. Some of these are briefly analyzed here. 6.1 Unitary state system Due to unitary nature of state, it wasn't possible for rulers to reach close to its people at ground and identify the diversity of society. Moreover, the unwillingness to do so created hegemony of majority. Minority groups who did not have the access to state powers were forced to accept the dominance of majority groups. Attempts of decentralizing the powers were neither adequate nor effective. The rulers at the center ruthlessly introduced policies and programs to favor of majority in order to govern irrespective of cultural differences and specialties. 9 Ranjan, Rakesh. 2009. Nepalese Minority Groups; struggle for identity & representation. Kathmandu: SUPPORT Nepal 28 Minority Rights Protection in Federal System

eljiodf yk ;d"xsf] pbo x'g] ;DefjgfnfO{ ;fsf/ agfpg] jf gagfpg] g'tg ;d"xsf] klxrfg jf jt{dfg ;d"xsf] jul{s/0fn] ug{;s5. ( pbfx/0fsf nflu dw]zl ;d'bfodf s]an %( hftlo ;d"xsf] klxrfg epsf] 5 h;dwo] ;f]gf/!=(( k ltzt, snjf/!=%(, xhfd jf 7fs'/!=#%, /fhj+zl!=#@, ;'bl!=@$, nf]xf/!=!$, ttdf!=)%, vftjl!=)# / wf]al!=)! k ltzt /x]sf 5g\. dw]zldf! k ltzt egbf sd ;+Vof af]s]sf hftdf g'lgof, s'dxf/, bg'jf/, xn'jfo{, /fhk't, sfo:y, aw]o{, ;Gyfn ;TQf/, emguf/ wu/, agt/, a/]o{, sx/, uu+o{, nf]wf, /fhef/, lag lagbf, e]lbof/ uw]/l, g'/+u, tfhk'l/of, lrl8df/, dfnl, a+nffnl, 8f]d, rdf/, d]r], xnvf]/, k~hfal l;v, ls;g, sf]r], w'lgof, hog] / d'08f, s'zjflbof tyf kty/s f kb{5g\. g]kfnsf cgo e"efudf ljlegg hft, efiff / wd{sf cfwf/df cnk;+vosdf kg]{ ;d"xsf] klg o:t} cj:yf /x]sf] 5. ol cnk;+vos ;d"xx? ;fdfgotof jl~rt / ;LdfGts[t x'g] vt/fdf 5g\ t/ cnk;+vos jf cflbjf;l ;d'bfosf dlxnfx? eg] ljz]if?kdf ;LdfGts[t x'g k'u5g\. cnk;+vos ;d'bfosf k'?ifx?sf] bffhf]df dlxnfx?sf] /fhgllts kbdf kx'fr sd x'g5 / ;]jfdf sfo{/t dlxnfn] n}lës lje]b ;xg ug'{kg]{ x'g5. hftlotf, ju{, wd{ / ;f+:s[lts ;d"xsf alr dlxnfdf x'g] u/]sf] lje]bsf] k s[lt, lsl;d / :t/df km/s kb{5. t;y{ cnk;+vos ;d"xsf dlxnfn] cgosf bffhf]df a9l kl8f ;xg ug'{k/]sf] 5. kxf8 / t/fo{df w]/} lk5l8psf ;d'bfo / blntx? jf:tjdf cnk;+vosdf k/]sf 5g\ eg] s]xl hghflt h:t} /fp6], s';'08f, r]kfë / cgo hflt nf]kf]gd'v 5g\. clxn] km/s n}lëstf epsf cnk;+vos ;d"xx?df t]; f] lnëlsf] klxrfg epsf] 5 eg] k s[lt k'hg] ;d"xsf]?kdf wfld{s ;d'bfosf] klxrfg x'g yfn]sf] 5. czqm jf km/s ;fdy{ af]s]sf ;d"x csf]{ cnk;+vos ;d"x agg;s5. ljlzi6 wd{ / ;f+:s[lts klxrfg af]s]sf cnk;+vosdf d'l:nd / yf?x?sf] 7"n} hdft /x]sf] 5. o; ;Gbe{df goff ;+ljwfgdf o:tf cnk;+vos ;d"xx?nfo{ ;LdfGts[t jf kll8t x'gaf6 hf]ufpg ;'wf/ sfo{qmdåf/f pko'qm Joj:yf Nofpg' h?/l x'g5. ;+3Lotfsf] :yfkgfkzrft\ /fhon] 9fs5f]k ug]{ lsl;dsf]] sfo{n] hgtfdf Gofo k bfg ug{ ;Sb}g. o;/l cnk;+vos ;d"x / dlxnfsf] ;LdfGts[t / lje]bdf kg]{ vt/f a9\g hfg5. ^= jlxis/0fsf] sf/0f cnk;+vos ;d"xsf dlxnfn] jl~rt / lje]bsf] kl8f ;xg ug'{k/]sf] 5 / s]xl 36gfdf zf]lift klg x'g'k/]sf] 5. pglx?nfo{ ;dfhdf JolQmut clwsf/ / k ltlglwtjaf6 jl~rt kfl/psf] 5. pbfx/0fsf nflu yf? Dflxnfx? sdn/l gfdsf] klxrfgsf] ;fy prr hftsf dflg;sf 3/df bf;l hljg JotLt ug{ afwo 5g\. g]kfndf jl~rtsf] ceof;nfo{ k uf9 agfpg] s]xl ttjx? oxff ;+nug ul/psf 5g\. ^=! PsfTds /fho Joj:Yff /fho PsfTds epsf sf/0f zf;sx?n] tnnf] txsf hgtfdf kx'fr agfpg ;s]gg\, ;dfhdf ljljwtfsf] klxrfg ug{ cifd ep. cem klxrfg lbg]] clgr5fsf sf/0f ;dfhdf ax'dtsf] cflwkto x'gk'uof]. /fho ;Qfdf kx'fr gk'u]sf cnk;+vos ;d"xn] ax'dtdf /x]sf ;d"xsf] jr{:j :jlsf/ ug{ afwo ep. zlqmsf] aff8kmff8 g pko'qm?kdf x'g;sof] g t k efjsf/l x'g;sof]. s]gb df /x]sf zf;sn] ;f+:s[lts ljljwtf / ljz]iftfsf afah'b gllt tyf sfo{qmdsf] th{'df ax'dtnfo{ dfq kmfobf k' ofpg] lsl;dn] u/]sf] 5. ( /~hg, /fs]z. @)^^. g]kfnl cnk;+vos ;d'bfom klxrfg / k ltlglwtjsf nflu ;+3if{. sf7df8f}+m ;kf]6{ g]kfn. ;+3Lo ;+/rgfdf cnk;+vos clwsf/sf] ;+/If0f @*

6.2 Practice of Hindu state Nepal was a Hindu state declared by constitution until 2007. The Hindu religion of state did not create a free and conducive environment for religious minority groups such as Muslims, Christians, Budhhists, Kiratis etc. Laws and practices were guided by Hind traditions. These laws were discriminatory to women in general. Naturally, women from minority groups were also discriminated. 6.3 Caste based social system Practice of Hindu state also reinforced caste discrimination based on "verna" system of Hindu society. According to Hindu verna system, society is divided in to four categories of Brahmin, Chhettri, Baishya and Shudra. In Nepal, occupational caste groups such as Kami, Damai, Badi, Pariyar and many others were treated as dalits being from the Shudra category of verna system. Dalits faced exclusion and discrimination in lowest form of un-touchability.dalit women suffered severe exclusion and discrimination 6.4 Language Language spoken by Hill Brahmin and chhettri caste group was given the status of "national language" and was named "Nepali" language. Use of local language was discouraged. This created serious marginalization of non Nepali speakers such as Tharu, Madheshi, Muslim and indigenous groups. Formal education was delivered in Nepali language. Thus children of non-nepali speaking communities were either discouraged to access formal education, or perform poor due to language barriers. This created linguistic minorities in Nepal. 6.5 Citizenship Citizenship is a tool for states to reach and deliver state services to its people. However; provision of citizenship certificate in Nepal was used as a tool of exclusion. Members of minority groups were frequently denied citizenship due to his/her failure to match with so called "Nepali identity". Nepalese with Indian looks (of Madheshi origin) would face difficulties to access citizenship. Children were denied by mother's name. People living in Nepalese land for generations were asked to produce Lalpurja (land ownership certificate) to get a citizenship, and the land office would ask citizenship for issuing a Lalpurja putting the person in situation of chicken first or egg. 6.6 Nationality versus identity State imposed one identity policy against nationality. The culture and dresses of upper cast hill people was established as national dress and it was practiced as national identity. Promotion of diverse identity was discouraged. Demand of identity rights was seen as an anti-national act. This created all identity groups other than upper class hill people as minority group. 6.7 Patriarchal society The patriarchal nature of Nepalese society facilitated the domination of men in all public and social sector including political, cultural and economic activities. Men controlled all resources and centralized powers pushing women to status of secondary citizen. This created women as minority group. 7. Recommendations: Positive Discrimination It is evident that exclusion of women from state powers and state organs in past has created wide gaps and gender inequality in Nepal. The level of exclusion and discrimination has been severe in case of women from minority groups such as Tharu, Muslim, Madhehsi, Dalits and several indigenous groups. It is widely accepted that state should adopt affirmative policies to ensure the protection of women's rights from socially, politically and economically backward groups in order to prevent further exclusion. As new constitution is going to restructure the state, it should provide framework for affirmative measures to ensure inclusion of minority women in federal system. 29 Minority Rights Protection in Federal System

^=@ lxgb' /fhosf] ceof; g]kfnnfo{ @)^$ ;Dd ;+j}wflgs?kdf lxgb' /fi6«sf]?kdf lrlggyof]. /fhon] lxgb' wd{ dfg]sfn] cgo wfld{s ;d"x h:t} O:nfd, O;fO{, af}4, ls/fftlcflb hf] cnk;+vosdf kb{5g\, pglx?sf nflu :jtgq / pko'qm jftfj/0f ;[hgf ug{ ;s]g. sfg'g / o;sf] ceof;nfo{ lxgb' k/dk/fn] 8f]/fPsf] lyof]. ;fdfgo?kdf ol lgod dlxnflje]bl lyp. cnk;+vos ;d"xsf dlxnf o;}sf/0f :jtm lje]bdf k/]. ^=# hftsf cfwf/df ;fdflhs Joj:yf lxgb' /fhosf] Joj:yfn] hftlo lje]bnfo{ j0f{joj:yfn] 5q5fof k bfg u of]. o; Joj:yfcg';f/ ;dfhsf] jul{s/0f rf/ j0f{ a Xd0f, If]qL, j}zo / z'b df ul/psf] lyof]. g]kfndf z'b hftdf kg]{ / k]zfsf cfwf/df sfdl, bdfo{, kl/of/ / cgonfo{ blntsf] ;+1f lbo{ Jojxf/ ul/of]. blntx?n] c5't k yfh:tf] tnnf] lsl;dsf] Jojxf/ / lje]b ;xg ug'{k of]. cem blnt dlxnfsf] cj:yf lje]b / jl~rtsf] cfwf/df boglo /x]sf] lyof]. ^=$ efiff kxf8l afx'g / If]qLn] k of]u ug]{ u/]sf efiffnfo{ /fli6«o efiffsf] kb klx ofo{ g]kfnl efiffsf] klxrfg lboof]. :yfglo efiffsf] k of]unfo{ lg?t;flxt ul/of]. o;n] g]kfnl efiff k of]u gug]{ ;d"x h:t} yf?, dw]zl, d':fndfg / cgo hghfltnfo{ ;LdfGts[t t'nofof]. cf}krfl/s lziff k bfg ug]{ dfwod klg g]kfnl efiff g} agof]. o;n] g]kfnl efiff k of]u gug]{ ;d"xsf afnaflnsfnfo{ cf}krfl/s lziff xfl;n ug{ lg?t;flxt u of], eflifs tuf/f]sf sf/0f cgo dft[efiffsf JolQmx? ;kmn x'g ;s]gg\. glthfcg';f/ g]kfndf eflifs cnk;+vossf] hgd eof]. ^=% gful/stf /fhosf ;]jfnfo{ hgtfdf k' ofpg] dfwod xf] gful/stf. t/ gful/stfsf] k df0fkq k bfg ug]{ Joj:yfn] klg al~rt agfpg] dfwodsf] sfd u of]. cnk;+vos ;d"xsf hgtfn] g]kfnl epsf] klxrfg k' ofpg g;s]sf sf/0fn] dfq gful/stf gkfpsf] cj:yf 5. dw]zl d"nsf g]kfnlnfo{ gful/stf lng sl7g epsf] 5. cfdfsf] gfdaf6 gful/stf lng klg gkfog] Joj:Yff lyof]. ztfablcf}+b]lv g]kfnl e"lddf a;f]af; ub}{ cfpsf hgtfnfo{ nfnk'hf{ k :t't ug{ nfufoof] / e"ld sfof{non] nfnk'hf{sf lgldt gful/stfsf] dfu u/]sfn] s'v'/f klxnf sl rnnf klxnf egg] c;xh kl/l:ylt l;h{gf epsf] 5. ^=^ /fli6«otf lj?4 klxrfg /fhon] /fli6«otfnfo{ ;+sl0f{ 3]/fdf /fv]sf] 5. prr hftsf kxf8l hgtfsf ;+:s[lt / klx/gnfo{ /fli6«o klx/g / klxrfg k bfg ul/psf] 5. ljljw klxrfgsf] ptyfgnfo{ lg?t;fxg ul/psf] 5. klxrfgsf] clwsf/sf] dfunfo{ /fli6«otflj/f]wl sfo{sf]?kdf lnopsf] 5. o;n] kxf8l prr hftafx]s cgonfo{ cnk;+vos ;d"xdf kf/]sf] 5. ^=& lkt[;qftds ;dfh g]kfnl ;dfh k'?ifk wfg epsfn] ;Dk"0f{ ;fj{hlgs / ;fdflhs If]q h:t} /fhfgllt, ;+:s[lt / cfly{s sfo{qmddf k'?ifsf] cflwkto /x]sf] 5. ;a} ; f]t / s]gb Lo zlqmdf k'?ifsf] x}sd /x]sfn] dlxnfnfo{ bf]; f] bhf{sf] hgtfdf ulgg5. o;n] dlxnfnfo{ cnk;+vos ;d"xsf] klxrfg lng jfwo kf/]sf] 5. &= ;'emfjm ;sf/ftds lje]bx? /fho ;Qf / /fhosf lgsfox?df ljutdf dlxnfnfo{ jl~rt agfogfn] g]kfndf n}lës c;dfgtf l;h{gf eof], o;n] ulx/f] ;fdflhs vf8n lgdf{0f u of]. cnk;+vos ;d"x h:t} yf?, d';ndfg, dw]zl, blnt Pj+ cgo hghfltsf dlxnfn] jl~rt / lje]bsf] r/d kl8f ef]ug'k of]. x/]s If]qaf6 /fhon] ;'wf/ sfo{qmdsf] gllt to u/]/ dlxnfsf] ;fdflhs, /fhgllts / cfly{s clwsf/ ;'lglzrt u/l yk alx:s/0f x'gaf6 /f]syfd ug{ h?/l /x]sf] s'/f pnn]v 5. goff ;+ljwfgn] /fhosf] k'g;+{/rgf ug]{ epsf] 5 / o;n] ol ;'wf/ sfo{qmdsf nflu ;+/rgf tof/ u/l ;+3Lo Joj:yfdf cnk;+vos dlxnfsf] ;dfj]lztfnfo{ ;'lglzrt ug]{ cfzf lnopsf] 5. ;+3Lo ;+/rgfdf cnk;+vos clwsf/sf] ;+/If0f @(

There are number of examples where states have taken affirmative measures to include and protect minority groups. Positive discrimination, positive attempts, reservation, special rights, preferential rights, special programs, protection policies and focused intervention are some of the examples of affirmative measures. State should introduce affirmative measures to guaranty the inclusion of minority groups in short term, mid-term and long term at federal and provincial levels. The term "affirmative action" refers to both mandatory and voluntary programs intended to affirm the civil rights of designated classes of individuals by taking positive action to protect them from, in the words of Justice william j. brennan jr., "the lingering effects of pervasive discrimination". For example, an employer might recruit qualified women where only men have worked before, such as businesses that operate heavy equipment. While affirmative action is often criticized as reverse discrimination, it has been a powerful tool for inclusion of minority groups in many countries. Some of affirmative actions are presented here; 7.1 Constitutional end to discrimination New constitution should put an end for all and always to any type of discrimination and provision of discriminatory laws based on sex in civil and political arena, citizenship, cultural rights, inheritance rights etc. Violation of Women's right should be categorized as violation of human rights and legal remedy should be made available for protection of women rights. State must ensure secular culture of state institution, such as army and police, to encourage inclusion of women (and men) from all religious groups in to state organs. There should be adequate constitutional framework for states and federal government to draft special rights, equal rights and gender specific rights for minority women. 7.2 Reservation for inclusion Proportional representation of all groups including minority women in all level of legislative from local to state and federal level should be ensured through clear, strict and mandatory provisions. State organs of all nature such as executive, bureaucracy, security forces, commissions, councils, academies, public corporation, judiciary, foreign services should adopt an inclusion policy through reserved quota for minority group women. There should be binding provision for inclusion of minority women in all functional committees sub committees at local level of governance and public works. There should be reserved quota for inclusion of minority women in all state organs and appointments at federal and state levels. If reserved quota is not fulfilled in a particular year, the remaining posts should be carried over to add in the quota of next year for the same group. For example, if there are 100 reserved posts in police service for Tharu women each year, but only 60 posts are fulfilled in a year. The remaining 40 seats would be carried over to next year and added in the reserved posts of next year to make it 100+40 posts for the same group. In order to achieve inclusion at senior level in short term, policies should be modified to induct minority women at senior level, especially in the civil services and security forces where induction is done at beginner level only. Minority women should have relaxation in requirements for appointment in selected fields. Relaxation could be in age bar, education and other requirements 30 Minority Rights Protection in Federal System

cnk;+vos ;d"xnfo{ ;dfj]z u/l ;'/Iff k bfg ug{sf nflu epsf ;'wf/ sfo{sf y'k } pbfx/0f 5g\. ;sf/ftds lje]b, ;sf/ftds k of;, sf]6f Joj:Yff, ljz]ifflwsf/, k fyldstf clwsf/, ljz]if sfo{qmd, ;'/Iff glltcflb ;'wf/ sfo{qmdsf pbfx/0f x'g\. /fhon] ;+3Lo / k fb]lzs txsf cnksfnlg, dwosfnlg / bl3{sfnlg?kdf cnk;+vos ;d"xsf] ;dfj]lztfsf] k Tofe"lt lbg ;'wf/ sfo{qmd nfu' ug{'k5{. ;'wf/sf sfo{n] nlift ;d"xsf gful/ssf clwsf/df ;'wf/ Nofpg] clgjfo{ / :j]lr5s b'j} sfo{qmdnfo{ a'emfpf5. o;sf nflu ;sf/ftds lje]b jf ultljlwsf] /0fgLlt ckgfp/ cl3a9\g' cfjzos x'g5. GofofwLz jllnod h] a] Ggfg h'sf] efiffdf of] ;j{jofks lje]bsf hl0f{ k efj xf], h;nfo{ ;sf/ftds lje]bsf] wssfn] w/fzfol agfpg]5. pbfx/0fsf nflu, clws tf}nsf j:t' ptkfbg ug]{ jf zf/ll/s an kg]{ 7"nf sdkglx? h;df k'?ifx? dfq sfd ub{y], To;n] of]uo dlxnfnfo{ etl{ ug{;s5. ;'wf/sf sfo{nfo{ slxn]sfxl+ pn6f] lje]bsf] ;+1f lbog5. o;f] elgp tfklg ;'wf/sf sfo{qmdnfo{ w]/} d'n'sdf cnk;+vos ;d"xnfo{ ;dfj]z ug]{ Ps zlqmzfnl ;fwgsf?kdf dflgpsf] 5. s]xl ;'wf/sf sfo{qmdx? oxff k :t't ul/psf 5g\M &=! ;+j}wflgs txdf lje]bsf] cgto goff ;+ljwfgn] lnª\usf cfwf/df gful/s / /fhgllts If]qdf, gful/stf, ;f+:s[lts clwsf/, k'vf}{nl ;DklQ dflysf] clwsf/ cflbdf s'g} k sf/sf] lje]b / lje]bd"ns sfg'gl k fjwfgdfly k"0f{?kdf /f]s nfpg'kb{5. dlxnfsf clwsf/sf] ;'/Iff ug{ o; k sf/sf clwsf/sf] pnn3+gnfo{ dfgj clwsf/sf] pnn3+gsf] ju{df /fvl sfg'gl sf/afxldf n}hfg'k5{. /fhon] cfkm\gf ;+:yf h:t} ;]gf / k x/ldf nf}+lss hftsf] ;'lglzrttf ug'{k5{ h;n] x/wfld{s ;d"xaf6 cfpsf dlxnf / k'?if b'j}sf] ;dfj]lztf sfod u/f];\. k b]z / ;+3Lo ;/sf/n] cnk;+vos dlxnfsf nflu ljz]if clwsf/, ;dfg clwsf/ / n}lës clwsf/ to ug{ pko'qm ;+j}wflgs ;+/rgf agfpg' h?/l /xg5. &=@ ;dfj]zltfsf nflu cf/if0f Gofokflnsfsf] x/]s c+udf, :yfglob]lv /fho / ;+3Lotfsf] tx;dd cnk;+vos dlxnfsf ;fy} ;Dk"0f{ ;d"xsf] ;+Vofsf] cfwf/df cfg'kflts k ltlglwtj ;'lglzrt ug{sf lgldt :ki6, tli0f / clgjfo{ Joj:Yff nfu' ug{'kb{5. /fhosf x/ k s[ltsf c+u h:t} sfo{kflnsf, sd{rf/l, ;'/Iff lgsfo, cfof]u, ;ldlt, kl/ifb\, ;+:yfg, Joj:yflksf, j}b]lzs ;]jfn] cnk;+vos dlxnfsf lgldt sf]6f Joj:yf ;lxtsf] ;dfj]zl gllt lng'kb{5. o;sf ;Dk"0f{ ;ldlt / pk;ldlt, :yfglo zf;gsf x/]s txdf cnk;+vos dlxnfsf] ;dfj]zl Joj:yf nfu' ug{'kb{5. /fhosf x/]s c+u / ;+3Lo tyf k b]zsf] txdf cnk;+vos dlxnfnfo{ ;dfj]z ug{sf nflu cf/if0fsf] Joj:yf x'g'kb{5. s'g} jif{ cf/if0f Joj:yfdf dlxnf cfk"lt{ gepdf Tof] cf/if0f l;6 csf]{ jif{sf] nflu yk x'g'k5{. pbfx/0fsf nflu yf? dlxnfsf lgldt k x/l ;]jfdf!)) j6f l;6 cf/if0fsf]?kdf /x]sf]df olb klxnf] jif{ ^) hgfn] dfq etl{ x'gkfp eg] ;f]xl ;d"xsf lgldt csf]{ jif{!$) j6f sf]6fsf nflu k lt:kwf{ u/fog' kb{5. Gfful/s ;]jf / ;'/Iff lgsfo hxff etl{ ;fgf] kbaf6 u/fog5, ljz]if?kdf tl c+usf prr kbdf cnksfnlg ;dodf ;dfj]lztf xfl;n ug{sf nflu cnk;+vos dlxnfnfo{ prr kbdf lgo'qm ug{] glltsf] kl/dfh{g ug'{kb{5. tl 5gf}6 If]qdf cnk;+vos dlxnfsf] etl{sf] of]uotfdf s6f}tl klg ug'{kb{5. s6f}tl pd]/, lziff jf cgo s'g} cfjzos kifdf ug{;lsg5. ;+3Lo ;+/rgfdf cnk;+vos clwsf/sf] ;+/If0f #)

7.3 Provision of institutions There should be provision of National Women Commission (NWC) at federal level and state level. Appointment in NWC and other commissions must be strictly inclusive. Federal government and state governments should have separate Ministry for women and children affairs and there should be provision of minority commission both at federal and state level 7.4 Special programs for protection and promotions There should be provision for special programs, budgeting, scholarship, incentive and reliefs for promotion, protection and inclusion of minority group women at all level. Such provisions should be embedded in legally binding documents and not to be left for politicians/government's jurisdictions. Government should introduce policies to encourage private sector/ngos contributing in women empowerment and inclusion. Such as giving tax rebate to companies employing 50% women all levels and or provision of rewards/recognitions to enterprises contributing in women's empowerment. State should create conducive environment for minority women at education center and work place. Respecting cultural sensitivity at public places should be abiding by law. Positive discrimination is a method to increase the inclusion of excluded groups in any institution. State must identify the areas of underrepresentation for minority women and introduce a policy of positive discrimination until the equal level is attained among the groups. Minority women from extremely marginalized groups must be protected through welfare and relief schemes to prevent further marginalization. Such schemes may include free medical services, allowances, subsidy in fertilizers and agriculture, discount in public transport, waiver of fee, insurance, scholarship, easy loans etc. 8. Conclusion Nepal is a country of diverse culture and identity. According to universal proclamation of human rights, every citizen has equal right to enjoy resources and facilities of state, and it is responsibility of state to ensure equal right. However; it hasn't been true for Nepal in past. The historical study of Nepal shows that a particular group had control of all state powers and resources excluding larger section of society from accessing the state services. This has been one of the root causes of decade long armed conflict and political struggle in this country. Various commitments of equality, social justice, inclusion and protection of rights have been expressed in the peace accords, interim constitution and political understanding which stress the need of addressing the issues of social, political and cultural inequality. It is important that the root causes of conflict and unrest are addressed properly to consolidate peace and promulgate a new constitution for Nepal. While moving from unitary to federal structure, there is a risk of falling in to majoritarian practice and overlooking the interest of minority groups. Therefore it is essential to carefully devise ways and mechanism to avoid further exclusion of already excluded minority groups. Affirmative actions are one of the most effective methods around the world used for inclusion and protection of minority groups. New constitution of Nepal should provide adequate framework for affirmative measures or positive discrimination to ensure rights, inclusion and protection of minority women. Benefitting and protecting minorities eventually leads to benefit and protection of all. With inclusive and democratic society, Nepal would be able to realize optimum development, prosperity and freedom in new federal structure. 31 Minority Rights Protection in Federal System

&=# ;+u7gsf] Joj:yf /fli6«o dlxnf cfof]unfo{ ;+3Lo k fb]lzs txdf :yfg k bfg ug'{kb{5. o; cfof]u / cgodf etl{sf] k lqmof ;dfj]zl x'g'kb{5. ;+3Lo ;/sf/ / k fb]lzs ;/sf/sf 5' f5' } dlxnf tyf afnaflnsf dgqfnosf ;fy} cnk;+vos cfof]usf] klg Joj:yf x'g'kb{5. &=$ ;+/If0f / k j{4gsf nflu ljz]if sfo{qmdx? cnk;+vos ;d"xsf dlxnfsf] ;'/Iff, ;dfj]lztf / k f]t;fxgsf nflu ljz]if sfo{qmd, ah]6 lgsf;f, 5fqj[lQ, kfl/>lds / ;xof]usf] Joj:yf ldnfog'kb{5. ol Joj:yfnfO{ s]an /fhgllts / ;/sf/l dftxtdf ;Lldt geo{ sfg'gl k fjwfg k bfg ug'{k5{. dlxnf ;'b[9ls/0f / ;dfj]lztfsf lgldt sfo{/t lghl If]q jf u}/;/sf/l ;+:yfnfo{ k f]t;fxg ldng] gllt k bfg ug]{ bflotj ;/sf/sf] xf]. h:t}, olb s;}n] sd{rf/ldf %) k ltzt dlxnf ;+nug u/fpdf s/ 5'6 lbg] / dlxnf ;'b[9ls/0fdf 6]jf k' ofpg] ;+:yfgnfo{ k'/:s[t jf klxrfg k bfg ug{;s5. /fhon] cnk;+vos dlxnfnfo{ z}lifs ;+:yfgdf k j]z / hflu/df pko'qm jftfj/0f lgdf{0f ul/lbg'k5{. ;fj{hlgs :yfgdf ;f+:s[lts ;+j]bgzlntfsf] dfgnfo{ sfg'gl :yflotj k bfg ul/g'k5{. ;sf/ftds lje]bn] s'g} ;+:yfgdf jl~rt ;d"xnfo{ ;dfj]z u/fpg d2t k' ofpf5. /fhon] cnk;+vos dlxnfsf] k ltlglwtj sd /x]sf] If]q klxrfg u/l ;d"xalr ;dfgtf gx'gh]n ;sf/ftds lje]bsf] gllt ckgfpg' k5{. r/d?kdf ;LdfGts[t epsf ;d"xnfo{ lxt / ;xof]usf] sfo{qmdåf/f yk ;LdfGts[t x'gaf6 hf]ufpg ;lsg5. ol sfo{qmddf lgz'ns :jf:y lzlj/, eqf, dn tyf s[lifdf cg'bfg, ;fj{hlgs ;jf/l;fwgdf ;x'lnot, z'nsdf s6f}tl, ladf, 5fqj[lQ, ;xh qm[0fcflb kg{;s5g\. *= lgisif{ g]kfn ljljw ;+:s[lt / klxrfg af]s]sf] b]z xf]. ljzjjofkl dfgj clwsf/sf] 3f]if0ffcg';f/ x/]s gful/sdf /fhosf] x/ ; f]t / ;]jfsf] ;b'kof]u ;dfg?kn] ug{ kfpg] clwsf/ /x]sf] 5. o; clwsf/sf] ;+/If0f / ;''lglzrttf ug]{ bflotj /fhosf] xf]. tyflk ljutdf o; oyfy{nfo{ a'e\mg] sfd epg. g]kfnsf] P]ltxfl;s cwoogn] s] b]vfpf5 eg] /fhosf ;Dk"0f{ zlqm tyf ; f]tdf s'g} ;d"x ljz]ifn] cflwkto hdfpsf] lyof] h;n] ;dfhsf] Ps 7"nf] lx:;fnfo{ To;df kx'fr x'gaf6 agb]h nufof]. o; d'n'sdf bzs nfdf] ;z:q ågå / /fhgllts ;+3if{sf] d"n sf/0f g} oxl xf]. cgtl/d ;+ljwfg, zflgt ;Demf}tfx? / /fhgllts ax;df ;dfgtf, ;fdflhs Gofo, ;dfj]lztf / clwsf/sf] ;'/Iffsf] k Tofe"lt ul/psf ljlegg 36gf 5g\, h;df ;fdflhs, /fhgllts / ;f+:s[lts c;dfgtfnfo{ ;Daf]wg ul/g'k5{. g]kfndf zflgt :yfkgf / goff ;+ljwfg lgdf{0fsf nflu ågå tyf czflgtsf d'vo sf/0fsf] ;Daf]wg ug{' h?/l 5. PsfTds ;+/rgfaf6 ;+3Lotfdf hfg] qmddf c?sf] cflwktodf kg]{ / cnk;+vos ;d"xsf] cfzfnfo{ pk]iff ug{] vt/f /xg5. t;y{ ljlw / af6f]sf] th'{df ubf{ jl~rt ;d"x yk alxis/0fdf gk?g\ egg] s'/fdf ljz]if Wofg lbg'k5{. ljzjdf cnk;+vos ;d"xsf] ;dfj]zls/0f / ;'/Iffsf nflu ;'wf/ sfo{qmdnfo{ k efjsf/l 9+un] cl3a9fpg] ljlwsf] klxrfg ul/psf] 5. g]kfnsf] goff ;+ljwfgn] ;'wf/ sfo{qmdsf nflu pko'qm ;+/rgf tof/ u/l cnk;+vos dlxnfsf] ;dfj]lztf, ;dfg clwsf/ / ;'/IffnfO{ ;'lglzrt ug{'kb{5. cnk;+vosnfo{ ;'/Iff / ;xof]u ugf{n] ;a}sf] ljsf; x'g] tyf ;'/Iff sfod x'g] cj:yf l;h{gf x'g5. ;dfj]zl k hftflgqs ;dfhsf ;fy goff ;+3Lo k 0ffnLdf updf g]kfndf ck]lift ljsf;, pgglt / :jtgqtf 5fpg] kssf 5. ;+3Lo ;+/rgfdf cnk;+vos clwsf/sf] ;+/If0f #!

Power Sharing in Sri Lanka- Experiences & Perspectives Dr. Jayampathy Wickramaratne 10 Sri Lanka, the small Indian Ocean Island also called Serendib which gave the word serendipity to the English language has not been a success story when it comes to power-sharing between the various communities that inhabit it. The ethnic conflict in Sri Lanka turned violent in the early 1980 s and gave birth to the Liberation Tigers of Tamil Eelam (LTTE), one of the most ruthless militant organizations the world has seen. The LTTE s intransigence in not responding to offers for a political solution, its over-estimation of itself and its misreading of the changed international situation post- 9/11 all contributed to its military defeat in May 2009. The LTTE being a symptom and not the cause of the conflict, the conflict goes on albeit without violence. The challenge now is to win the peace. 1. Demography Due to the armed conflict that prevailed, the last complete All-Island census was held as far back as 1981. According to the census, Sinhalese constituted 74% of the population, Tamils were 12.7%, Muslims 7.0% and Indian Tamils were 5.5%. The conflict resulted in some demographic changes, but no reliable figures are available. A few hundreds of thousands of Tamils left the country, bringing the current Tamil population to an estimated 8-9%. A large number also moved from the Northern and Eastern Provinces to other parts of the country while a large number of Muslims and the few Sinhalese who lived in the North were forced to flee. The Northern Province consists about 95% Tamils. The Eastern Province is the most ethnically mixed province with 40.3% Tamils, 37.5% Muslims and 21.6% Sinhalese. The Eastern Province has three districts - Trincomalee to the North, Batticaloa and Ampara to the South. To make things difficult, Trincomalee which adjoins the North has all three communities in substantial numbers (25.3% Sinhalese; 28.6% Tamils and 45.3% Muslims) while Batticaloa is Tamil-dominated (74%, the rest being almost all Muslims). The southernmost district of the East, Ampara has 44% Muslims, 37.5% Sinhalese and 18.3% Tamils. However, the Sinhalese occupy a very large area of mainly agricultural land in the district, while the Muslims and Tamils live highly concentrated in coastal areas. The Indian Tamils are found in the central hills, in the Central, Uva and Sabaragamuwa Provinces. However, the areas that they dominate in these three provinces are not contiguous. They also have substantial numbers in the Western and Northern Provinces. 10 M.P.A. (J'Pura), Ph.D. (Pera); President's Counsel. The writer was formerly Senior Advisor to the Ministry of Constitutional Affairs. He was a member of the team that drafted the Constitution of the Republic of Sri Lanka Bill, 2000 and a signatory to the "Majority Report" of the Panel of Experts appointed by the President to service the All Party Representative Committee. 32 Minority Rights Protection in Federal System

>Ln+sfdf zlqmsf] af 8kmf 8 cg'ej / cjwf/0ff 8f= hodkfyl ljqmdf/tg]!) ;]/]glbj klg elgg] ;fgf] ;fd'lb s 6fk'sf] gfd xf] >Ln+sf. Ol08og dxf;fu/n] 3]l/Psf] o; ålkn] c+u ]hl efiffsf nflu ;]/]glbktlú gfd lbpsf] 5. o;n] d'n'ssf ljlegg ;d'bfodf zlqm aff8kmff8 ug]{ sfo{df ;kmntf xfl;n ug{;s]sf] 5}g. >Ln+sfdf ;g\ *) sf] bzssf] k f/desfnd} hfltut ågå ;'? eof], lna/];g 6fOu;{ ckm tldn Ond -Pnl6l6O{_ sf] hgd eof] hf] kl5 up/ ljzjd} lgb{ol ;d"xdwo]sf] Ps ;d"xsf?kdf lrlgof]. Pnl6l6O{sf] ;+sl0f{ dfgl;stfs} sf/0f /fhgllts ;dfwfg ;Dej epg. ljzjsf] abln+bf] kl/l:ylt a'e\mg g;s]sf], gfog On]e]gÚ sf] b'vb 36gfkl5 l;h{gf epsf] cj:yfnfo{ ;Daf]wg ug{ g;s]sf] / clws cftdd"nof+sgsf] lzsf/ ag]sf] sf/0f ;g\ @))( sf] d] dlxgfdf o;sf] ;}lgs ;+u7g w/fzfol eof]. t/ Pnl6l6O{ :jod\df ågåsf] sf/0f eg] lypg, of] To;sf] ptkfbg lyof]. h]xf];\, >Ln+sfdf lx+;f/lxt ågå lg/gt/ hf/l 5, zflgt :yfkgf cfhsf] r'gf}tl b]lvpsf] 5. ågå s;/l ;dfkt kfg]{ egg] ljifodf ljrf/sf] sdl b]lv+b}g t/klg o;sf] ;kmntfsf] pbfx/0f eg] xfdl;fu 5}g. >Ln+sfsf] ågå ljzjdf ;jf{lws n]lvpsf] / ljzn]if0f ul/psf] ågådwo] Ps dflgg5. d'n'ssf nflu s'g cjwf/0ff ;xl xf]nf eg]/ cfnf]rgf / ljzn]if0f;lxtsf cglugtl k :tfjx? k :t't epsf 5g\. o:tf] ljzn]if0f cgo d'n'ssf nflu a9l nfebfos x'g;s5 o; k sf/sf] ågåaf6 arg / ;dod} lgsf; vf]hg >Ln+sfsf] cg'ej o:t} cj:yfsf cgo d'n'ssf nflu l;sfo agg;s5.!= hg;fª\volsl ;z:q ågåsf sf/0f >Ln+sfsf ;a} efudf k"0f{?kn] hgu0fgf gepsf] w]/} jif{ eof], ;g\!(*! otf of] ;Dej epsf] 5}g. o; hgu0fgfcg';f/ l;+xfnl &$, tfldn!&=& / ef/tlo tfldn %=% k ltzt /x]sf 5g\. ågåsf sf/0f hg;f+ª\volsldf s]xl kl/jt{g eg] cfpsf] 5, t/ o;nfo{ k dfl0ft ug]{ ljzj;glo cfwf/ eg] 5}g. xhf/f}+ xhf/ tfldn b]z 5f]8]/ knfog epsf 5g\, of] qmd x]bf{ d'n'sdf pglx?sf] k ltzt ( ;Dd x'g;s5. cfgtl/s cfk jf;df klg ljrng cfpsf] 5, pq/l / k"jl{ k b]zx?af6 gful/sx? cgoq a;fo{+ ;/]sf 5g\ tfldn ax';+vofdf /x]sf If]qx?af6 7"nf] ;+Vofdf d';ndfg / s]xl ;fgf] kl/df0fdf l;+xfnlx?nfo{ ha/h:tl lj:yflkt ul/psf] 5. pq/l k fgtdf tfldnsf] k ltzt sl/j (% /x]sf] 5. hals k"jl{ k fgt eg] hfltut lx;fan] w]/} ldl>t 5 $)=# k ltzt tfldn, #&=% k ltzt d';ndfg tyf @!=^ k ltzt l;+xfnl /x]sf 5g\. k"jl{ k fgtdf tlg lhnnf pq/df l6«ª\sf]dfnl / blif0fdf afl6\6sfnf]jf / cdkf/f /x]sf 5g\. pq/;fu hf]l8psf] l6«ª\sf]dfnldf tlgj6} ;d'bfosf] kl/df0f pnn]vo 5 @%=# l;+xfnl, @*=^ tfldn / $%=# d';ndfg /x]sf 5g\. afl6\6sfnf]jf eg] tfldn ax';+vos If]q xf] hxff &$ k ltzt pglx?s} hg;+vof /x]sf] 5 eg] affsl ;a} d';ndfg 5g\. k"jl{ If]qsf] ;'b"/ blif0fl lhnnf cdkf/fdf $$ k ltzt d'l:nd, #&=% k ltzt l;+xfnl /!*=# k ltzt tfldn a;f]jf; ub{5g\. lhnnfsf] km/flsnf] s[lif pj{/ If]q l;+xfnlsf] k efjdf 5 eg] d';ndfg / tfldn k fom ;fd'lb s lsgf/ If]qdf a;f]jf; ub{5g\. ef/tlo tfldnx? dwo If]qsf] kxf8l e"efudf a;f]jf; ub{5g\ hf] pef tyf ;af/fufd'jf /fhodf kb{5. oblk ef/tlo tfldn afx'no /x]sf ol e"efu lgs6 eg] 5}gg\. pglx? klzrdl tyf pq/l k fgtx?df klg pnn]vo kl/df0fdf a;f]jf; ub{5g\.!) PdlkP -h]k'/f_, lkpr8l -k]/f_, k ]l;8]g6 sfplg;n. n]vs ;+j}wflgs dfldnf dgqfnosf jl/i7 k"j{ k/fdz{bftf x'g'x'g5. pxff u0ftflgqs >Ln+sfsf] ;+ljwfg, @))) d:of}bf ;ldltsf ;b:o klg x'g'x'g5. ;j{bnlo k ltlglwx?sf] sld6l;fu ;xsfo{ ug{ /fi6«kltåf/f ul7t lj1;ldltsf ;b:o ag]/ d]hf]l/6l l/kf]6{ú df x:tfif/ ug]{ sfd klg pxffn] ug'{epsf] 5. ;+3Lo ;+/rgfdf cnk;+vos clwsf/sf] ;+/If0f #@

Religion-wise, Buddhists are about 69 %, almost all of them being Sinhalese. Hindus are 7% and come from the Tamil and Indian Tamil communities. Christians are 6.2% coming from Sinhala, Tamil and Indian Tamil communities. Muslims are about 7.6%. 2. Brief constitutional history Sri Lanka, then Ceylon, was granted independence by the British in 1948 and became a dominion within the British Commonwealth. The British-given Constitution was essentially unitary. In 1956 Sinhala replaced English as the only official language, to the exclusion of Tamil, which is spoken by the Tamils, Muslims and the Indian Tamils. In 1970, Members of Parliament came together to form a Constituent Assembly which adopted a Republican Constitution in 1972. The Tamils initially participated in the Assembly. Sri Lanka was declared a unitary state, brushing off a Tamil demand for federalism and even a compromise proposal for minimal devolution. The Tamil representatives did not attend the Assembly after it decided to give constitutional status to Sinhala as the only official language. Buddhism was given the foremost place. The form of government continued to be Parliamentary. The 1978 Constitution entrenched the unitary nature, which meant that in addition to a two-thirds majority in Parliament, approval at a national referendum is needed to change the unitary character. The position of Sinhala as well as that of Buddhism continued. 3. 13th Amendment to the Constitution, 1987 With the conflict escalating and almost solely due to Indian pressure, limited devolution of power was introduced by the 13th Amendment under the United National Party (UNP) Government. Provincial Councils with limited legislative and executive powers were set up. Tamil was also made an official language. But, literally speaking, every comma and full stop in the Thirteenth Amendment have been used by successive Governments, without exception, to thwart the process of devolution. 4. Legislative power The Thirteenth Amendment established Provincial Councils with limited legislative and executive powers within a unitary state. There are three lists of subjects and functions, Reserved List, Provincial Council List and Concurrent List. A Provincial Council (PC) has no power to make statutes on any matter set out in the Reserved List. A PC statute on a matter in the PC List makes a pre-1987 parliamentary law on the same matter inoperative in the Province if the statute states in its long title that the statute is inconsistent with such law. However, the legislative power of a PC in regard to a matter in the PC List is not exclusive; Parliament too can legislate on such matters. A Parliamentary Bill on a PC matter must be referred to all PCs for the expression of their views. If all agree, Parliament can pass the Bill with a simple majority. If one or more PCs do not agree, and the Bill is passed by only a simple majority, then the Bill would become law applicable only to those Provinces that agreed. But if the Bill is passed by a 2/3rds majority, then the law would apply even in the Provinces that did not agree. As for matters in the Concurrent List, Parliament needs to consult PCs before it takes up a Bill and a PC must also do the same. In the event of inconsistency, the Parliamentary law shall prevail. However, a PC statute on such a matter would make a pre-1987 law on the subject inoperative unless Parliament decides otherwise. A significant feature of the Reserved List is its first item: national policy on all subjects and functions. This is a provision that has been abused by the Centre under successive governments. 33 Minority Rights Protection in Federal System

wfld{s?kdf egg'kbf{ >Ln+sfdf af}4dful{sf] k ltzt ^( /x]sf] 5 hf] ;a}h;f] l;+xfnlx? g} x'g\. lxgb'sf] k ltzt & /x]sf] 5 hf] tfldn tyf ef/tlo tfldnx? x'g\. d';ndfgsf] ;+Vof em08} &=^ k ltzt /x]sf] 5. @= ;+lifkt ;+j}wflgs Oltxf; l;nf]gsf gfdn] lrlgg] >Ln+sf a]nfotl pklgj];af6!($* df :jtgq eof], kl5 a]nfotl sdgj]nyleq /Xof]. a]nfotn] agfpsf] ;+ljwfg d"ne"t?kdf PsfTds lyof], k fgtsf] Joj:yf ul/psf] lypg.!(%^ df l;+xfnf efiffn] c+u ]hlnfo{ k lt:yfkg ub}{ PSnf] sfdsfhsf] efiff jf cf}krfl/s efiff agof]. t/ o; a]nf tfldn, ef/tlo tfldn / d'l:nd ;d'bfon] af]ng] tfldn efiffnfo{ a]jf:tf ul/of]. ;g\!(&) df ;+;b\ ;b:ox?sf] ;+ljwfg;ef u7g ul/of] h;n]!(&@ df u0ftflgqs ;+ljwfg tof/ kf/]. ;+ljwfg;efdf k f/dedf tfldn klg ;xeful ep. pglx? cfkm\gfnflu 5'6\6} k b]zsf] rfxgf /fvy] t/ ;+ljwfg ;+3Lotfsf] kifdf geo{ PsfTds agof]. Go"gtd ljs]gb Ls/0f;Ddsf] Joj:yf ul/of];\ eg]/ tfldn kifn] u/]sf] dfu klg ;g'jfo epg. l;+xfnl efiffnfo{ dfq ;+j}wflgs?kd} cflwsfl/s ;~rf/sf] dfwod agfpg] lg0f{o epkl5 tfldnn] ;+ljwfg;ef alxisf/ u of]. wfld{s b[li6n] af}4 wd{nfo{ dfq :yfg lboof] eg] ;+;b\n] ;/sf/ u7g ug]{ k'/fg} Joj:yfnfO{ lg/gt/tf lboof]. ;g\!(&* sf] ;+ljwfgn] PsfTds /fho;+/rgfnfo{ :yflkt dfq u/]g, PsfTds k 0ffnL kl/jt{g ug{ ;+;bsf b'o{ ltxfo{ ;b:on] /fli6«o hgdt ;+u xsf nflu k :tfj kfl/t ug'{kg]{ k fjwfg klg /flvof]. l;+xfnlsf] cj:yf / af}4 wdf{jndalsf] jr{:jnfo{ lg/gt/tf lboof]. #= ;+ljwfgdf!#cf}+ ;+zf]wg,!(*& d'n'sdf ågå a9\b} upsf sf/0f >Ln+s]nL ;/sf/dfly cgt/f{li6«o bafa l;h{gf eof], ;+o'qm /fli6«o kf6l{sf] ;/sf/nfo{ l5d]sl ef/tsf] s8f bafa k of], ;Lldt zlqm lbg]u/l ;+ljwfgsf]!# ;+zf]wg ul/of]. ;Lldt Joj:yfksLo tyf sfo{kflnsf ;DaGwL clwsf/ k fgtlo kl/ifb\nfo{ lbg] k fjwfg /flvof]. tfldn efiffnfo{ klg cflwsfl/s ;~rf/sf] dfwod :jlsf/ ul/of]. kl5nnf ;/sf/n] ;+ljwfgsf]!#cf}+ ;+zf]wgnfo{ k"0f{lj/fd / cw{lj/fd;dd Vofn ub}{ nfu" klg u/], ckjfbnfo{ 5f]8]/ ljs]gb Ls/0fsf] k lqmof k i6?kdf ;'? eof]. $= Joj:yfksLo zlqm PsfTds k 0ffnLsf] d'n'sdf ;+ljwfgsf]!#cf}+ ;+zf]wgn] ;Lldt Joj:yfksLo tyf sfo{kflnsf;dagwl clwsf/;lxtsf] k fgtlo kl/ifb\ u7g eof]. ;+zf]wgsf ljifonfo{ tlg ;"rldf ljeqm ul/of] cf/if0f ;"rl, k fgtlo kl/ifb\ ;"rl / ;dfgfgt/ ;"rl. k fgtlo ;/sf/nfo{ cf/if0f ;"rlleq /x]/ sfd ug]{ cg'dlt t lyof] t/ s'g} k sf/sf] ljwfg agfpg] clwsf/ lypg. k fb]lzs kl/ifb\sf] sfo{ ;"rlsf ;DaGwdf agfog] kl/ifb\sf] ljwfgn]!(*& cl3sf] ;+;blo sfg'gnfo{ k b]zdf nfu" ug{ /f]sg] epsf sf/0f ;f] clwsf/ glbopsf] xf]. sfg'g sfof{gjogdf Ps?ktf sfod ug{ klg ljwfg agfpg] 5'6 lbopg. t/, k fb]lzs kl/ifb\ ;"rlsf ;DaGwdf k fb]lzs kl/ifb\sf] Joj:yfksLo zlqm lg/k]if lypg, o:tf ljifodf dlgqkl/ifb\n] klg Joj:yfksLo clwsf/sf] k of]u ug{;syof]. ;+;blo ljw]osn] ;a} k fb]lzs kl/ifb\n] k fb]lzs ljifodf cfk\mgf] ljrf/ clejolqmsf nflu Joj:yf ug}{kg]{ xf]. o; ljifodf ;a} ;xdt epdf ;+;bn] ;fdfgo ax'dtsf cfwf/df ljw]os kfl/t ug{;s5. olb Ps b'o{ k fb]lzs kl/ifb\ o;df ;xdt epgg\ eg] klg ;fdfgo ax'dtsf] cfwf/df ljw]os kfl/t ug{ ;lsg5. o:tf] cj:yfdf ;xdt epsf k b]zdf kfl/t lgod nfu" x'g5. ljw]os b'o{ ltxfo{ ax'dtn] kfl/t epdf c;xdt k b]zdf klg kfl/t lgod nfu" ug{;lsg5. ;femf ;"rlsf ;DaGwdf rrf{ ubf{, sfo{kflnsfn] ljw]os lgdf{0f ug'{k"j{ k fb]lzs kl/ifb\;fu k/fdz{ ug'{ cfjzos 5, kl/ifb\n] klg To;} ug'{k5{. Ps?ktf gepsf] cj:yfdf ;+;blo sfg'gn] k fyldstf kfpf5. oblk o:tf ljifodf kl/ifb\sf] ljwfg!(*& sf] sfg'gcl3 ;+;b\n] cgoyf lg0f{o gu/]sf] cj:yfdf nfu" x'g5 elgg'kyof{]. cf/if0f ;"rlsf dxtjk"0f{ ljz]iftfdf klxnf] t ;a} ljifo / sfo{df /fli6«o gllt lgdf{0f x'g' g} xf]. t/ o; k fjwfgnfo{ s]gb n] g} cj1f u of], vf;u/l kl5nnf ;/sf/n] o;sf] kfngf u/]gg\. ;+3Lo ;+/rgfdf cnk;+vos clwsf/sf] ;+/If0f ##

It is reasonable to expect the provision to mean that Parliament may lay down national policy even relating to a matter in the Provincial List or the Concurrent List by a simple majority and PCs should abide by such national policy in making statutes. In view of the express provision contained in Article 154G (3) that a Parliamentary law on a matter in the Provincial List would apply in a Province which has not consented to it only if the law has been passed by a two-thirds majority, there can be little doubt that Parliament cannot, in the guise of laying down national policy, legislate on a matter set out in the PC List by a simple majority without the consent of the PC concerned. In other words, national policy on matters set out in the PC List and the Concurrent List would be in the nature of framework legislation to which PCs should conform. To take one example, under item 8 of the PC List, the regulation of road passenger carriage services and carriage of goods by motor vehicles within the Province and the provision of intra-provincial road transport services are provincial subjects. This clearly permits a PC to set up its own transport services. The Colombo government has however prohibited PCs from providing omnibus services, claiming to declare "Government policy" though the National Transport Commission Act of 1991. Although it is clear from a reading of the 13th Amendment that national policy could only be laid down by an Act of Parliament, successive Governments have been purportedly laying down such policy by Cabinet decisions and ministry circulars. The Gunawardena Committee appointed in 1995 to study the operation of Provincial Councils had the following to say on how the national policy provision had been misused: "There has been a tendency on the part of Government Ministries to interpret National Policy in operational terms, thereby extending their areas of administrative action in respect of provincial subjects. National Policy being a reserved function brings into effect a role differentiation between the Government and the Province. Thus, whereas the Government performs a directive role the Province is relegated to an implementational role. Hence there is a tendency on the part of the Government to give policy directives, marginalizing the Province from the decision making process. This leaves only a residual role which is largely operational. The tendency to view the Province in operational terms is reinforced by the nature and scope of Government- Province relations currently in place. It is a negation of the power sharing basis of devolution and does not constitute a relation for establishing a partnership between the Government and the Provinces." 11 5. Executive power Under Article 154 C, the executive power of a PC extends to matters with respect to which a PC has power to make statutes, namely matters in the PC List and the Concurrent List. However, for provincial authorities to exercise executive power, they need statutory authority. In 1987 there were at least 300 pieces of legislation in respect of matters coming under the PC List and the Concurrent List. References to the minister or a particular public officer in such laws could not be taken to be references to the Governor, provincial minister or the corresponding provincial public officer in the absence of an express provision to that effect in the Thirteenth Amendment. PCs were thus faced with the impossible task of passing statutes corresponding to all such laws if they were to exercise executive power. They did not have their own draftsmen and had to rely on the Centre for that too. In the absence of a statute, the Centre would continue to exercise executive power in respect of the subject in question. 11 Provincial Councils: Operational Experience of Devolution, Report of the Committee to study the operation of Provincial Councils in Sri Lanka, 1996, 52 (unpublished). 34 Minority Rights Protection in Federal System

;+;bn] k fb]lzs ;"rl jf ;dfgfgt/ ;"rlnfo{ ;d]6]/ /fli6«o gllt agfpg' / To;sf] kfngf ;a}af6 xf];\ egg] ck]iff ug'{ tfls{s b]lvg5. kl/ifb\n] ljwfg agfpfbf oxl glltsf cfwf/df /x]/ agfpg' cfjzos x'g5. k fb]lzs ;"rlsf ljifodf ;+;blo sfg'gsf] bkmf!%$hl -#_ df Joj:yf u/]cg';f/ clejolqm;dagwl k fjwfg k b]zx?df sfof{gjog x'gkyof]{. t/ b'o{ ltxfo{ ax'dtn] of] k fjwfg kfl/t gepsf] egb} sfofgjog ul/pg. o;af6 ;+;b\ ;b:ox? k fb]lzs clwsf/nfo{ ;d]6]/ /fli6«o gllt agfpg rfxfb}gg\ egg] cfz+sf l;h{gf eof]. hals k b]zsf ;"rl ;fdfgo ax'dtaf6 kfl/t ep k'ug] ljifo xf]. csf]{ zjbdf egg'kbf{, k fb]lzs kl/ifb\;dagwl ;"rl / ;dfgfgt/ ;"rlsf ljifo ;+;b\n] kfl/t ug'{sf cltl/qm kl/ifb\:jo+n] klg ;'lglzrt u/]cg';f/sf] ;+/rgfnfo{ c+ulsf/ ub}{ cl3 a9\g'kg]{ ljifo xf]. pbfx/0f lbp/ egg'kbf{, k fb]lzs kl/ifb\ ;"rlsf] * gda/ a'fbfdf Ps k b]zleq jf cgtk f{b]lzs ;8sdfu{af6 cfjfudg ug]{ ;jf/l;fwg, ofq' / ;]jfsf ljifonfo{ k fb]lzs ljifo dflgg5. o;n] k i6 zjbdf k f]lzs kl/ifb\nfo{ cfk\mgf] oftfoft ;]jf Joj:yfkg ug{ cg'dlt lbpsf] 5. t/ sf]ndaf] ;/sf/n] ;/sf/sf] glltú egb} k b]znfo{ :jtgq?kdf oftfoft ;~rfngsf] clwsf/af6 jl~rt u/]sf] 5. /fli6«o oftfoft cfof]u P]g,!((! n] k b]zsf] clwsf/ /Iff ug{ ;s]sf] 5}g. o;cltl/qm ;+ljwfgsf]!#cf}+ ;+zf]wgdf ;+zf]lwt k fjwfgsf] JofVofsf nflu ;+;b\n] P]g agfpg] / /fli6«o glltdf ;d]6\g]5 eg]/ k i6 pnn]v ul/psf] 5. kl5nnf ;/sf/x?n] o; k fjwfgk lt pbf;lgtf b]vfpsf] / dlgqkl/ifb\n] lg0f{o u/]/ kl/kq ub}{ sfd rnfpg] ceof; epsf] b]lvg5. ;g\!((% df k fb]lzs kl/ifb\sf] ultljlw cwogsf nflu u'gjfb]{gf ;ldlt u7g ul/of], o; ;ldltn] /fli6«o glltsf] k fjwfgnfo{ b'?kof]u u of] egg] k i6 kf/]sf] 5. ;ldltsf] lgdg l6kk0fl x]/f}+ Æ;/sf/L dgqfnox?n] /fli6«o gllt eggfn] k fgtlo ljifosf ;DaGwdf cfk\mgf] k zf;lgs sfo{ If]q lj:tf/ xf] eg]/ a'em]sf] b]lvof]. /fli6«o glltnfo{ ;/sf/ / k b]zalr leggftf k bz{g ug]{ Ps s8l hf] dgqfnosf] cwlgdf /x]sf] 5, egg] cy{df lnoof]. ;/sf/n] cfk\mgf] lgb]{zgftds e"ldsfnfo{ 7"nf] tyf k b]zsf] sfof{gjogsf] e"ldsf eg] ;fgf] egg] ;f]rfosf ;fy sfd u of]. lg0f{o k lqmofdf k b]znfo{ ;xeful u/fpg] sfo{ epg, p;nfo{ ;LdfGts[t agfp/ /fvg] sfo{ ;/sf/af6 eof]. ;/sf/sf] o; k sf/sf] Jojxf/n] k fb]lzs kl/ifb\k ltsf] p;sf] k fyldstfnfo{ sdhf]/ agfof]. k fb]lzs kl/ifb\nfo{ ;3fpg] dfgl;stf b]vfpg'sf] ;f6f] s]gb n] clgr5fk"j{s jfwo ep/ u/]sf] sfdsf?kdf o;nfo{ lnof]. o;n] ubf{ ;/sf/ / k b]zalrsf] ;DaGw ck]lift?kdf ljsf; x'g ;s]g. ljsf;sf nflu zlqmsf] aff8kmff8 cfjzos 5 egg] oyfy{nfo{ a]jf:tf ul/psf] / ;/sf/ / k b]zalrsf] ;fem]bf/l cjndjg gul/psf] kfoof].æ @@ %= sfo{sf/l zlqm ;+ljwfgsf] wf/f!%$;l n] k fb]lzs ;/sf/sf] sfo{sf/l clwsf/ ljwfg agfpg] / ;f]cg';f/ sfof{gjog ug]{ ;Ldf;Dd clej[l4 u/]sf] 5. k fb]lzs kl/ifb\ ;"rl / ;dfgfgt/ jf ;xcl:ttj ;"rldf k/]sf ljifodf p;n] ljwfg agfpg} k5{. k fkt zlqmsf] ceof; ug{sf nflu k fb]lzs kl/ifb\nfo{ ljwfg lgdf{0fsf] clwsf/ lbog' cfwf/e"t ljifo x'gcfpf5.!(*& df tof/ kfl/psf] k fb]lzs kl/ifb\ ;"rl / ;xcl:ttj ;"rlcgt/ut sdtldf # ;o j6f ljifodf ljwfg agg' cfjzos lyof]. ;+ljwfgsf]!#cf}+ ;+zf]wgdf dgql / k zf;ssf] lgb]{zgdf /x]/ sfo{ug]{ k fjwfg 5, ueg{/ jf k fgtlo dgql jf k fgtlo ;fj{hlgs clwsf/lsf] lgb]{zgdf /x]/ sfo{ ug]{ elgpsf] 5}g. o;n] ubf{ k fb]lzs kl/ifb\n] sfo{sf/l clwsf/ k of]u ug{sf nflu ljwfg agfpg] / kfl/t ug]{ s'/f c;dej agof]. o; cltl/qm k b]z;fu g t ljwfg d:of}bf ;ldlt lyof] g t o;sf nflu s]gb ;Fu} ljzjf; ug{ ;lsg] cfwf/. k b]zn] ceof; ug{ kfpg'kg]{ ;a} clwsf/ ljwfgsf] cefjdf s]gb n] g} k of]u ul//xof].!! k fgtlo kl/ifb\m zlqm ljs]gb Ls/0fsf] Jofjxfl/s cg'ej, >Ln+sfsf k fgtlo kl/ifb\sf] sfof{gjog cwoog ;ldltsf] k ltj]bg,!((^, %@ -ck sflzt_. ;+3Lo ;+/rgfdf cnk;+vos clwsf/sf] ;+/If0f #$

PCs pressed the government to enact parliamentary legislation providing that all references in existing law in respect of matters set out in the Provincial and Concurrent Lists be construed as references to the corresponding provincial authorities. The government reluctantly agreed to make such a provision, but applicable only to the Provincial List and also kept the powers of the Centre intact. The Provincial Councils (Consequential Provisions) Act No. 12 of 1989 was accordingly passed. There remain an estimated 200 laws in respect of matters set out in the Concurrent List that were not covered by the Act. Up to now, only a few statutes in respect of such matters have been enacted by the various PCs, mainly due to lack of their own draftsmen but also due to frustration resulting from the Centre's lack of support. The Centre has not moved to prepare model statutes which could be used by PCs, as in other countries. In the absence of their own statutes, provincial authorities are unable to exercise executive power, notwithstanding Article 154 C. Problems have cropped up even regarding matters set out clearly in the Provincial List. A pre-1987 Parliamentary law on such a matter will be inoperative in a Province only if a statute is made. Although provincial authorities are able to exercise powers under a pre-1987 law to which the Provincial Councils (Consequential Provisions) Act applies, central authorities are also able to exercise powers if they so wish, unless and until a provincial statute is made. What happened in the case of the Ratnapura and Kegalle Base Hospitals that were administered by the Sabaragamuwa Provincial Council is illustrative. The Centre moved to take over the administration of the two hospitals in 1994 and the Attorney General advised the Centre that in the absence of a provincial statute which provides for the administration of the two hospitals, "the control of these two hospitals legally remains with the Ministry of Health." 12 Again, on being asked for advice on whether the minister at the Centre could exercise the power of supervision over local authorities if there was no provincial statute on the subject, the Attorney General stated: "It should also be noted that the Provincial Councils (Consequential Provisions) Act does not take away from the Minister of the Central Government the powers which he has under any Act of Parliament, which can continue to be exercised by him as well." 13 Clearly, the Centre has been making use of the difficulties faced by provincial councils in making their own statutes to encroach on areas devolved on the provinces. With regard to interference by the Centre, the Gunawardena Committee stated: "Most Government Ministries continue to conduct their operations on a pre-devolution basis. Thus Government Ministries routinely address guidelines and circular instructions direct to the respective provincial heads of departments by-passing the Provincial Ministry. Further, there has been no restructuring at the centre in terms of roles and functions in the context of devolution. It would appear that there has been a failure on the part of most Government Ministries to formulate national policies in their sectoral subjects in partnership with Provincial Councils." 14 6. The sad story of agrarian services It is instructive to examine in detail one significant case of a clash between the centre and provinces. The Agrarian Services (Amendment) Bill of 1991 sought to amend several sections of the original act that dealt with matters relating to landlords and tenant cultivators. The Bill was challenged in the Supreme Court 15 on the ground that it dealt with matters set out in the PC List as well as the Concurrent List and should have been referred to the PCs. 12 ibid 57. 13 ibid 55. 14 ibid 7-8. 15 Decisions of the Supreme Court on Parliamentary Bills, Vol. VII, 9. 35 Minority Rights Protection in Federal System

k fb]lzs kl/ifb\n] ;/sf/nfo{ ljwfg agfpg] clwsf/sf nflu ;+;b\df ljw]os nluof];\ eg]/ lgs} bafa lbof], k'/fgf ;Gbe{nfO{ k b]zn] clwsf/ k of]u ug{;sg] u/l ;+zf]wg ug{ dfu /fvof], ;+ljwfgsf] cfzocg';f/ k fb]lzs ;xcl:ttjsf] ;Ddfg ul/of];\ eg]/ cfu x u of]. t/ k fb]lzs kl/ifb\sf] o; dfuk lt ;/sf/n] k r"/ cfnzotf b]vfof], s]xl k fjwfgdf ;+zf]wg u/]klg k fb]lzs ;"rlsf s]xl ljifoafx]s ;a}df s]gb n] cfk\mg} clwsf/ sfod /fvof]. ;g\!(*( sf] P]g!@ hf] k fgtlo kl/ifb\ -k d'v k fjwfg_ ;Fu ;DalGwt 5, ck]lift?kd} kfl/t ul/of]. s]xl ljifonfo{ 5f]8]/ ;xcl:ttj ;"rl;fu ;DalGwt sl/a @ ;o sfg'g kfl/t x'g devolution ;s]gg\, cfh;dd klg kfl/t epsf 5}gg\. o;f] x'g'df k fgtdf ljwfg d:of}bf ;ldlt gx'g' klg sf/0fsf]?kdf /x]sf] 5, t/ d'vo sf/0f rflx+ s]gb Lo ;/sf/sf] a]jf:tf g} xf]. s]gb sf] a]jf:tfsf afah'b ;Lldt ljifodf eg] ljwfg ag]sf 5g\, s]gb n] To;nfO{ cg'df]bg klg u/]sf] 5. cgo d'n'sdf h;/l k fb]lzs ;/sf/nfo{ clwsf/ lbg / ;xhls/0f ug{ s]gb ;lqmo x'g5, >Ln+sfdf To:tf] 5}g. wf/f!%$ u n] k b]znfo{ sfo{sf/l clwsf/ lbpsf] epklg pglx?sf] cfk\mgf] ljwfg gepsf sf/0f pglx?n] To; k sf/sf] clwsf/ k of]u ug{ kfpsf 5}gg\. k fgtlo ;"rln] ;d:of sxff 5 eg]/ klxrfg u/]sf] 5. ;g\!(*& cl3 o:tf ljifodf ;+j}wflgs sfg'gn] ;Daf]wg u/]sf] lypg, kl5 klg ljwfgsf cefjdf ;d:of ;dfwfgdf s]lgb t /x]/ sfd cl3 a9fpg ;lspg.!(*& k"j{ k fgtlo kl/ifb\ -kl/0ffddf cfwfl/t k fjwfg_ P]gsf] sfof{gjogsf nflu k fgtlo lgsfo ;kmn eptfklg s]gb Lo ;/sf/n] klg ;dfgfgt/?kdf ;f]xl clwsf/ k of]u ul/lbof], k fgtlo ljwfg gag];dd s] ljifodf s'g clwsf/ s;n] k of]u ug]{ egg] cndn sfod /xg] lglzrt eof]. o; k sf/sf] cndnsf sf/0f Jojxf/df s:tf] c;lhnf] k5{ eggf] a'e\mgsf nflu /Tgk'/f s]ufnl a]; c:ktfndf ;af/fufd'jf k fgtlo kl/ifb\sf] Joj:yfkg x]/] kof{kt x'g5. tl b'j} c:ktfnsf] k zf;g k fgtlo kl/ifb\n] x]l//x]sf]df To;nfO{ lj:yfkg ub}{!(($ df s]gb n] k ToIf x:tif]k u of]. k fgtlo ljwfgsf] cefjsf sf/0f sfg'gl b[li6n] b'j} c:ktfnsf] lhdd]jf/l :jf:yo dgqfnon] lng5 dxfgofoflwjqmfn] k i6 kf/].!@ o;cltl/qm, k fb]lzs ljwfg gepsf] cj:yfdf s]gb Lo dgqln] k b]zdf lg/lif0f ug{' 7Ls xf] ls xf]og eg]/ dxfgofoflwjqmfnfo{ k Zg ubf{ pgn] eg], ;+;bsf] s'g}klg sfg'gcg';f/ k fb]lzs kl/ifb\ -kl/0ffdd'vl k fjwfg_ P]gn] s]gb Lo ;/sf/sf] dgqlnfo{ 6f9f /fvg ;Qm}g egg] s'/f klg Wofg lbog' cfjzos 5. cyf{t s]gb Lo dgqln] k b]zdf cfk\mgf ultljlwsf] ceof; lg/gt/ cl3 a9fpg ;S5.Ú!# k i6?kdf egg'kbf{, s]gb n] k fgtlo kl/ifb\nfo{ k b]zsf ljsf;df cfk\mg} ljwfg agfpg sl7gfo v8f ub}{cfpsf] 5. k b]zdfly s]gb sf] x:tif]ksf ljifodf u'gjb]{gf ;ldlt pnn]v ub{5 M clwsf+z ;/sf/l dgqfnox? clwsf/ ljs]gb Ls/0fcl3sf] ceof;nfo{ lg/gt/tf lbo/x]sf 5g\. ;/sf/l dgqfnox? k fgtlo dgqfnonfo{ a]jf:tf ub}{ k fgtlo ljefulo k d'vx?nfo{ lgoldt?kdf cfjlws lgb]{zg tyf kl/kq ul//x]sf x'g5g\. o;cltl/qm ljsf;sf ;Gbe{df s]gb sf] e"ldsf / ultljlwsf] k'g;{+/rgf e}/x]sf] 5}g. olcflb sf/0fx?n] ubf{ k fgtlo kl/ifb\;fu ;/sf/l dgqfnosf] ;fem]bf/l u/l /fli6«o gllt lgdf{0f ug{ ;ls/x]sf] 5}g.!$ ^= :jfldtj l;h{gfdf lg/fzfsf] syf s]gb / k b]zalr l;h{gf epsf] Ps ågåsf] ;Gbe{ ljzn]if0fsf nflu oxff pnn]v ul/g5. ;g\!((! sf] :jfldtj ;]jf -;+zf]wg_ ljw]os huufwgl / df]xl;fu ;DalGwt ljifosf] JofVof ug]{ P]gsf ljljw v08x?sf] ;+zf]wg ug{ cfjzos lyof]. To; ljw]ossf lj?4 ;jf]{rr cbfntdf!% d'2f k/]sf] lyof]. Tof] d'2f k fb]lzs kl/ifb\sf] ;"rl / ;xcl:ttjsf] ;"rlsf] JofVof;Fu ;DalGwt lyof].!@!#!$!% ;f]xl l/kf]6{, k[i7 %& ;f]xl l/kf]6{, k[i7 %% ;f]xl l/kf]6{, k[i7 & * ;+;b\ ljw]ossf ;Gbe{df ;jf]{rr cbfntsf] lg0f{o, c+s &cf}+, (. ;+3Lo ;+/rgfdf cnk;+vos clwsf/sf] ;+/If0f #%

The Bill made no reference, in the preamble or elsewhere, to national policy being made. The Centre did not claim even in Court that the Bill sought to lay down national policy. But the Court held that "[i]t is sufficient for present purposes that the matters dealt with in the Bill are all matters of national policy in regard to the rights and liabilities of owners and tenant-cultivators, and thus fall within [the Reserved List]." How national policy could be laid down by amending an existing law on a PC matter was not explained. With the establishment of PCs in 1988, agrarian services was considered a provincial subject and the Councils had their own Departments of Agrarian Services and matters relating to landlords and tenant cultivators were handled by these departments. After the Supreme Court's aforesaid determination, an Additional Solicitor General informed the Centre that in view of the decision of the Supreme Court, the matters dealt with in the Bill were all matters of national policy in regard to the rights and liabilities of owners and tenant cultivators and thus fell within the Reserved List, the latter could proceed "on the basis that Agrarian Services is not a devolved subject." Soon, the Centre took over the provincial departments. The advice was clearly wrong. Even if the Supreme Court was correct in saying that the matters covered by the Bill were all matters of national policy, that did not make agrarian services a subject in the Reserved List. When national policy is declared in respect of a subject in either the Provincial List or the Concurrent List, that does not shift the subject to the Reserved List. In 2003, the Supreme Court, in Madduma Banda v Assistant Commissioner of Agrarian Services 16, held that matters relating to tenant cultivators came under the Provincial List. Commenting on the earlier determination, the Court took the view that it would not be correct to say that the matters dealt with by the Bill were all matters of national policy. The judgment was certainly devolution-friendly. Despite the clarification, PCs still do not exercise powers relating to agrarian services. 17 7. Later attempts at power-sharing There are three key documents that proposed a strong power-sharing arrangement improving on the 13th Amendment. They are the Constitution of the Republic of Sri Lanka Bill of 2000, the Majority Report of the Experts Panel appointed by the President to service the All Party Representative Committee and the recommendations of the All Party Representative Committee (APRC). 8. Constitution of the Republic of Sri Lanka Bill, 2000 Chandrika Kumaratunga became President in 1994. The Sri Lanka Freedom Party (SLFP) had vigorously opposed the 13th Amendment. However, under her leadership, the SLFP adopted a prodevolution platform. 1994-2000 saw a dynamic campaign led by her for a strong power-sharing arrangement as a solution to Sri Lanka's ethnic crisis. In August 2000, after several months of discussions with the UNP, the Kumaratunga Administration presented the Constitution of the Republic of Sri Lanka Bill. However, with the dissolution of Parliament for General Elections only a few weeks away, the UNP went back on its agreement to support the Bill. The Bill was debated in Parliament but not put to a vote, as the necessary twothirds majority was not forthcoming. 16 [2003] 2 Sri LR 80. 17 For a fuller discussion on the working of Provincial Councils, see Lakshman Marasinghe and Jayampathy Wickramaratne (eds) 13th Amendment: Essays on Practice (Stamford Lake, Pannipitiya 2010) and Ranjith Amarasinghe et al Twenty Two Years of Devolution: An Evaluation of the Working of Provincial Councils in Sri Lanka (Institute for Constitutional Studies, Rajagiriya 2010). 36 Minority Rights Protection in Federal System

/fli6«o glltsf af/]df agfopsf] ljw]ossf] k :tfjgf tyf cgoq klg ;Gbe{ glbopsf] egb} cfklq hgfopsf] lyof]. k fb]lzs cjwf/0ffnfo{ ;d]6]/ ljw]os Nofpg'k5{ egg] ;DaGwdf s]gb n] cbfntdf klg s'g} k sf/sf] bfjl u/]g. t/ cbfntn] cf/if0f ;"rlsf ;DaGwdf huufwgl / df]xlsf ;DaGwdf /fli6«o glltlgdf{0faf/] ljw]osdf kof{kt dfqfdf pnn]v ul/psf] 5Ú eg]/ :jlsf/ ul/psf] 5. k fgtlo kl/ifb\sf ;DaGwdf JofVof ug]{ df}h'bf sfg'gnfo{ ;+zf]wg ug]{ ljifodf /fli6«o glltn] s;/l ;Daf]w ug'{knf{ eg]/ JofVof ul/pg. ;g\!(** df k fgtlo kl/ifb\sf] :yfkgfsf ;fy 3/hUufdflysf] :jfldtj lgwf{/0f ug]{ sfo{nfo{ k fgtlo ljifosf?kdf :jlsf/ ul/of], k fgtlo :t/sf 3/hUuf;DaGwL ljjfb ldnfpg] / dflns tyf df]xlalrsf] :jfldtj lgwf{/0f ug]{ sfdsf nflu :yfglo :t/d} ljefusf] :yfkgf eof]. ;jf]{rr cbfntsf] km};nf egb} cltl/qm dxflwjqmfn] s]gb nfo{ hfgsf/l u/fpcg';f/ ljw]osdf rrf{ epsf] huufwgl / df]xlh:tf e"ld;dagwl :jfldtj, clwsf/ / lhdd]jf/lsf] ljifo cf/if0f ;"rldf kb{5, To;}n] o;sf] Joj:yfkg ug]{ clwsf/ k fgtlo kl/ifb\df /x]sf] 5. s[lif;dagwl ;]jf ljsl;t x'g g;s]sf] ljifo xf]ú egg] kifdf ;/sf/sf] Wofgfsif{0f u/fpfb} ;jf]{rr cbfntn] s]gb sf] Wofgfsif{0f u/]sf] 5. t/ s]gb n] k fgtlo ljefux?nfo{ pl5gg] sfddf cem a9l ;lqmotf b]vfof]. k/fdz{ k i6?kdf unt lyof]. ;jf]{rr cbfntn] s[lif;dagwl ljifo cf/if0f ;"rldf /x]sf sf/0f k fgtlo kl/ifb\sf] If]qflwsf/ xf], ljw]osdf k/]sf ljifo /fli6«o glltdf ;d]l6g'k5{ eg]/ u/]sf] JofVofnfO{ klg s]gb n] jf:tf ul/lbpg. k fgtlo ;"rl jf ;xcl:ttj ;"rln] ;d]6]sf ljifosf ;DaGwdf /fli6«o glltn] k i6 JofVof ub}{ tl ;"rlnfo{ cf/if0f ;"rldf?kfgt/0f ug{ ;lsgg eg]sf] 5. ;g\ @))# df dw'df agbflj?4 s[lif ;]jf!^sf ;xfos cfo'qm sf] d'2fdf df]xlsf] ljifo k fgtlo ;"rldf kb{5 eg]/ cbfntn] km};nf u/]sf] 5. k"j{k lta4tfk lt l6kk0fl ub}{ cbfntn] ljw]osn] ;d]6]sf ;a} ljifo /fli6«o glltsf ljifo x'g\ egg' 7Ls xf]og eg]sf] 5. cbfntsf] km};nf zlqm ljs]gb Lssf kifdf /x]sf] lyof]. t/ cfh;dd klg k fb]lzs kl/ifb\ s[lif;dagwl clwsf/sf] pkof]uaf6 jl~rt 5.!& &= zlqm af 8kmf 8df epsf kl5nnf k of;x? ;+ljwfgsf]!#cf}+ ;+zf]wgnfo{ k j4{g ub}{ ;an zlqm aff8kmff8sf] k :tfj ug]{ k d'v tlg sfuhft 5g\. u0ftflgqs >Ln+sfsf] ;+ljwfg ljw]os @))), /fi6«kltn] ;j{bnlo k ltlglw ;ldltnfo{ ;]jf lbg u7g u/]sf] lj1sf] ax';+vos k ltj]bg / ;j{bnlo k ltlglw ;ldltsf] l;kmfl/;n] zlqm aff8kmff8sf kifdf jsfnt u/]sf 5g\. *= u0ftflgqs >Ln+sfsf] ;+ljwfg ljw]os, @))) rlgb sf s'df/ft'+uf!(($ df /fi6«klt eog\. >Ln+sf lk m8d kf6l{n]!#cf}+ ;+zf]wgsf] rsf]{ lj/f]w ug]{ kf6l{ epklg p;n] zlqm ljs]gb Ls/0fnfO{ lg/gt/tf lbof]. ;g\!(($ b]lv @))) ;Dd >Ln+sfsf] hfltut ;+s6 ;dfwfgdf zlqm ljs]gb Ls/0fsf] ;an k of]u klg ul/of]. o'pgkl;fu dlxgf}+ nfdf] 5nkmnkl5 cu:6 @))@ df s'df/ft'+uf ;/sf/n] u0ftflgqs >Ln+sfsf] ;+ljwfg d:of}bf k :t't u of]. oblk cfdlgjf{rg x'g'egbf s]xl ;ftfcl3 ;+;b lj36g ul/of], ljw]osk lt ;dy{g hgfpg] o'pgkln] ljrf/ abnof]. ;+;b\df ljw]os 5nkmndf t cfof] t/ dtbfgsf] r/0f;dd k'ug ;s]g, b'o{ ltxfo{n] kfl/t ug'{kg]{ k fjwfg k"/f epg.!^ -@))#_@ >L Pcf *).!& k fgtlo kl/ifb\sf] sf/afo{af/] lj:t[t 5nkmn, nid0f d/fl;+3] / hodkfyl ljqmd/tg]åf/f ;Dkflbt!#cf}+ ;+zf]wgm ceof; -:6fdkmf]8{ n]s, kfggllkltof @)!)_ /ghly cdf/fl;+3] / ;fylx?åf/f lnlvt zlqm ljs]gb Ls/0fsf] @@ jif{m >Ln+sfdf k fb]lzs kl/zb\ sfo{d"nof+sg -;+j}wflgs cwoog k lti7fg, /fhflul/of @)!)_. ;+3Lo ;+/rgfdf cnk;+vos clwsf/sf] ;+/If0f #^

The 2000 Constitution Bill proposed a non-unitary framework. Rather than using a label to describe the nature of the State, the Bill stated: "The Republic of Sri Lanka is one, free, sovereign and independent State consisting of the institutions of the Centre and of the Regions which shall exercise power as laid down in the Constitution." A clear-cut division of powers between the Centre and the Regions was proposed. The legislative power of the Regions would be exclusive. There would be no Concurrent List. The subjects in respect of whom national policy could be made by the Central Legislature were restricted. 9. Majority Report of the Experts Panel, 2006 In June 2006, President Rajapaksa appointed a 17-member panel of experts to service the All Party Representative Committee (APRC) which had been set up by the All Party Conference (APC) summoned by the President to consider a constitutional settlement to Sri Lanka's ethnic crisis. However, there was little interaction between the Experts Panel and the APRC and the Experts Panel decided to present its own report to the President. However, the Panel itself was divided. The 11-member majority proposed a strong power-sharing arrangement which proposed improvements on the 2000 Constitutional Bill. The majority proposed power-sharing at the Centre as well through a Second Chamber of Parliament representative of the Provinces. A specialized Constitutional Court outside the normal hierarchy of courts was also proposed. The majority was representative of Sinhalese, Tamils and Muslims. The "Majority Report", as it is now referred to, had cross-community support. Even Tamil hardliners found it difficult to oppose it. The minority report was signed by three Sinhalese members and proposed minimal devolution within a unitary state. Two Sinhala members presented their own reports. 10. All Party Representative Committee (APRC) Inexplicably, the Tamil Nationalist Alliance (TNA) was not invited to join the All Party Conference (APC) which was summoned by the President in 2006. The United National Party, the main party in the Opposition, participated during the initial stages. The APRC was set up by the APC. It deliberated for nearly 03 years and in July 2009, two months after the Liberation Tigers of Tamil Eelam (LTTE) was militarily defeated, the Chairman of the APRC, Prof. Tissa Vitharana, M.P. and a Member of the Cabinet of Ministers, presented a summary of the decisions to the President. The summary was never published. However, two members of the APRC later released their own summary of the decisions arrived at, based on the transcripts of the more than 100 meetings of the APRC. The Chairman has acknowledged the correctness of the summary. The APRC too agreed on a strong power sharing arrangement both at the centre and the periphery, but felt short of the Majority Report. However, it is generally accepted as a good basis for future talks to arrive at a comprehensive constitutional settlement. 11. Distribution of powers Experiences under the 13th Amendment as detailed above shows the need for a clear cut division of powers between the Centre and the Regional Units. The unitary mind set of politicians as well as of bureaucrats is a major reason for the Centre not being supportive of the cause of devolution. 37 Minority Rights Protection in Federal System

;g\ @))) sf] ;+ljwfg d:of}bfdf >Ln+sfnfO{ k fb]lzs d'n'ssf?kdf k :tfj ul/psf] lyof], PsfTds zf;g k 0ffnLsf] d'n'ssf?kdf xf]og. k b]zx? s:tf x'g]5g\ egg] ;DaGwdf pnn]v ul/psf] lyof], u0ftflgqs >Ln+sf Ps d'n's xf], of] :jtgq, ;fj{ef}d / :jfwlg 5. ;+ljwfgn] Joj:yf u/]cg';f/ s]gb tyf k b]zn] clwsf/sf] pkof]u ug]{5g\.ú s]gb / k b]zsf clwsf/sf ;DaGwdf ;':ki6 JofVof ul/psf] lyof]. k fgtnfo{ ljwflosl zlqm klg lbopsf] lyof]. ;dfgfgt/ jf ;xcl:ttjsf] ;"rl agfopsf] lypg. k fgtsf nflu s]gb Lo ;+;b\n] ljwfg agfpg] / o;sf nflu ;/sf/n] /fli6«o gllt tof/ kfg]{ cjwf/0ff vf/]h ul/psf] lyof]. (= lj1 ;d"xsf] ax';+vos k ltj]bg, @))^ /fi6«klt /fhkfifn] h'g @))^ df ;j{bnlo ;ldltnfo{ ;xof]u k' ofpg!& ;b:olo lj1x?sf] Ps ;d"x u7g u/]. >Ln+sfsf] hfltut ljjfb ;+j}wflgs ljlwaf6} ;dfwfg ug{] af6f] klxrfgsf nflu ;j{bnlo ;Dd]ngsf] cfof]hgf ul/psf] lyof]. t/ bnsf k ltlglw / lj1x?sf alr kof{kt ljrf/ dgyg x'g kfpg. cgttm lj1 ;d"xn] k ltj]bg tof/ kf/]/ /fi6«kltnfo{ a'emfof]. lj1 ;d"xdf klg ;j{;ddt lg0f{o x'g eg] ;s]g, ax'dtsf cfwf/df k ltj]bg kfl/t u/]/ a'emfopsf] lyof]. lj1 ;ldltsf!! ;b:osf] x:tfif/;lxt a'emfopsf] To; k ltj]bgdf ;g\ @))) sf] ;+j}wflgs d:of}bfnfo{ ;'wf/ ub}{ zlqmsf] aff8kmff8 ug{ hf]8bf/?kdf l;kmfl/; ul/psf] lyof]. s]gb sf clwsf+z kbsf nflu ;dfj]zl cjwf/0ff / k b]zsf] k ltlglw;efnfo{ bf]; f] lhdd]jf/lsf ;fy zf;slo :j?ksf] ;+/rgf l;kmfl/; ul/of]. cbfntx?sf] >]0fL >[+vnfaflx/ /xg] u/l ljz]if ;+j}wflgs cbfntsf] klg k :tfj ul/psf] lyof]. lj1 ;ldltdf l;+xfnl, tfldn / d'l:nd ;d'bfosf JolQmsf] afx'no lyof]. ax';+vof k ltj]bgú sf gfdn] kl/lrt o; l/kf]6{df ax' ;d'bfosf] of]ubfg 5. tfltd s6\6/kgylx?n] ;d]t o; k ltj]bgnfo{ vf]6 nufpg ;s]gg\. lj1x?dwo]s} tlg ;b:on] 5'6\6} l/kf]6{ tof/ kf/]/ a'emfpsf lyp, To;df PsfTds zf;g k 0ffnLsf] jsfnt ub}{ zlqmsf] Go"g ljs]gb Ls/0fdf hf]8 lbopsf] lyof]. o;}u/l csf{ b'o{ l;+xfnl ;b:on] klg 5'6\6} k ltj]bg tof/ kf/]/ a'emfpsf lyp.!)= ;j{bnlo k ltlglw ;ldlt cfzro{hgs ljifo s] eg], ;g\ @))^ df /fi6«kltn] cfdgq0f u/]sf] ;j{bnlo ;Dd]ngdf tfldn /fi6«jfbl df]rf{ - tfldn g];gflni6 PnfOG;_ nfo{ cfdgq0f ul/psf] lypg. k ltkifdf /x]sf] k d'v bn ;+o'qm /fli6«o kf6l{ k f/ldes sfndf dfq ;xeful eof]. ;j{bnlo k ltlglw ;Dd]ngsf] ;+/rgf PkL;Ln] agfpsf] lyof]. of] tlg jif{;dd k efjdf /Xof]. Pn6L6LO{nfO{ ;}lgs cfqmd0fåf/f w/fzol agfpsf] b'o{ dlxgfkl5 PkLcf/;Lsf cwoif k fwofks l6:;f leyf/fgf, hf] ;+;b\ ;b:o tyf Soflag]6 dgql klg x'g\, n] ;j{bnlo ;Dd]ngsf] k ltj]bg /fi6«kltnfo{ a'emfp, t/ To;df s] lyof] cfh;dd ;fj{hlgs ul/psf] 5}g. oblk ;ldltsf b'o{ ;b:on]!)) egbf a9l k6s epsf 5nkmnx?df cfkmgf] tkm{af6 epsf] ;xdltsf] ;f/f+znfo{ ;fj{hlgs u/]sf lyp. cwoifn] b'o{ ;b:oaf6 ;fj{hlgs epsf ljifodf ;xdlt klg hgfpsf 5g\. ;j{bnlo k ltlglw ;ldltn] klg zlqm ljs]gb Ls/0fsf kifdf g} lg0f{o u/]sf] / s]gb tyf k b]zdf ;d'bfosf] k ltlglwtj k s6 x'g]u/l zf;slo :j?ksf] Joj:yf x'g'kg]{ l;kmfl/; u/]sf] lyof]. t/ ax';+vof k ltj]bgsf] h:t} ;j{;ddt l/kf]6{ lbg g;s]sf sf/0f o;n] cf}krfl/s?kdf lg0f{o aflx/ NofPg. oblk zlqm ljs]gb Ls/0fsf ljifodf rng] 5nkmndf ;j{bnlo k ltlglw ;Dd]ng / o;n] u/]sf lg0f{o ;xfos ;fljt x'g]5g\. lj:t[t ;+j}wflgs ;+/rgfdf ol ;a}sf] of]ubfg cfjzos 5.!!= zlqmsf] af 8kmf 8 cufl8 pnn]v ul/ph:t} ;+ljwfgdf epsf]!#cf}+ ;+zf]wgn] >Ln+s]nLdf b'o{ k i6 ljefhg l;h{gf u of] s]gb df clwsf/ /fvg'kg]{ / If]qLo PsfO{nfO{ lbg'kg]{ egg] ljjfb l;h{gf eof]. /fhgllt1 / k zf;sdf ;+:sf/ut?kd} PsfTds zf;g k 0ffnL /x]sfn] zlqm ljs]gb Ls/0fsf] ljsf;nfo{ pglx?n] a'e\mg ;s]gg\. ;+3Lo ;+/rgfdf cnk;+vos clwsf/sf] ;+/If0f #&

It is in this background that both the 2000 Bill and the APRC proposed that the Concurrent List be completely abolished. The Majority Report made an interesting proposal, obviously learning from the Spanish experience of asymmetrical devolution. A Concurrent List consisting of a minimum of subjects and functions was proposed. The majority recommended that a Province would be required to negotiate with the Centre and seek the authority of Parliament for the transfer of any subjects or functions in the Concurrent List to its own Provincial List. However, in view of the historical fact that the Tamil people had been agitating for self-rule over a period of time, and the conflict having its origins in that agitation, it was recommended that all subjects and functions in the Concurrent List be deemed to be subjects and functions of the Provincial List of the unit/s of the North and East. This would act as a safeguard against possible intrusions by the Centre into areas of provincial competence in those two Provinces. The above mechanism, the majority stated, would provide for asymmetry at the beginning but with all Provinces having the opportunity to ultimately take over all subjects and functions in the Concurrent List, resulting in symmetry. In the event of there being a Concurrent List, it should be explicitly mentioned as to whether the Centre or the Regional Units should exercise executive power in respect of subjects listed. The writer recommends that it should be the Regional Units that should have exclusive executive power in regard to the subjects in the Concurrent List, even though the Central Legislature could also make statutes. 12. The Centre's powers to make national policy As shown above, the powers of the Centre under the 13th Amendment to make national policy on devolved subjects have been misused by the Centre. The 2000 Bill provided for national policy and national standards to be made by the Centre on limited matters only. Among them are national health plan, national health standards, education, national standards on professions, agriculture, land use, youth, women's affairs and sports. The APRC as well as the Majority Report recommended that where national policy is to be made, it should be done through a participatory process involving regional units. National policy would be declared by the Central Legislature in the form of framework legislation only and regional units would be required to make their own legislation within such framework. The Central legislature cannot make legislation in respect of devolved subjects in the guise of making national policy. It would be useful to note the provisions of some countries with devolved or federal structures that permit the Centre to make framework legislation in respect of identified subjects and functions. In Germany, the Federation may enact framework provisions in certain areas. It is not permitted to legislate for the Lander (a German State) or regulate those areas exhaustively. The Federation only puts in place a framework that allows scope for regional differences. The framework is fleshed out by the Lander with their own provisions. The Federal Constitutional Court has emphasized that significant leeway must be left to the Lander. Under Article 75 of the German Constitution (Power of the Federation to Pass Framework Legislation Catalogue), general rules may be enacted concerning the legal status of persons in the public service of the Lander, communities and other corporate bodies of public law, the general principles governing higher education, the general rules of law concerning the status of the press and motion pictures, hunting, protection of nature and care of the countryside, land distribution, regional planning and water conservation and matters relating to registration and identity cards. 38 Minority Rights Protection in Federal System

oxl k[i7e"ldsf sf/0f ;g\ @))) sf] d:of}bf / ;j{bnlo k ltlglw ;ldltn] agfpsf] ;xcl:ttjsf] ;"rl k"0f{?kn] vf/]h eof]. ax';+vof k ltj]bgn] /f]rs k :tfj /fv]sf] oxff pnn]vo 5, :k]gdf zlqm ljs]gb Ls/0f c;dfg'kflts 9+un] ul/+bf b]lvpsf] l;sfo ;fef/ u/]sf] 5. Go"gtd ljifo / sfo{ ;lxtsf] ;xcl:ttjsf] ;"rl p;n] k :tfljt u/]sf] 5. o; k ltj]bgn] k b]zn] s]gb ;Fu ;dgjo /fv]/ sfo{ ug'{kg]{, ;xcl:ttj ;"rldf /x]sf ljifonfo{ k fb]lzs ;"rldf ;fg'{kg]{ / ;+;bsf] clwsf/ k b]zdf ljs]lgb t ug{ dfu ug'{kg]{ l;kmfl/; u/]sf] 5. P]ltxfl;s tyonfo{ x]bf{ tldn ;d'bfo nfdf] ;dob]lv :jzf;gsf nflu cfgbf]ng ul//x]sf] 5, To; cfgbf]ngn] pglx? a;f]jf; u/]sf] If]qdf lg/gt/ cl:y/tf 5, To;}n] ;xcl:ttjsf] ;"rldf /x]sf ;a} ljifo / sfo{ pq/ tyf k"j{sf PsfO{x?sf] k fgtlo ;"rlsf ljifo / sfo{df ;fl/g'k5{ egl l;kmfl/; u/]sf] 5. ol b'o{ /fhox? k fgtlo k lt:k4f{sf] s]gb df /x]sf / czfgt ag]sfn] :yfglo hgtfnfo{ ;'/Iff sjr k bfg ug{ klg zlqm ljs]gb Ls/0f cfjzos 5. o; ;+ogqn] k f/dedf /fhox?nfo{ ;dfg cj;/ lbg g;s]klg sfnfgt/df ;a} k fgtnfo{ ;xcl:ttjsf] ;"rldf /x]sf sfo{ / ljifox? x:tut ug{ / ;dfgtfsf] l:ylt l;h{gf ug{ ;3fpg]5. ;xcl:ttjsf] ;"rl lgdf{0fs} a]nf ljifout ;"rldf k/]sf] sfo{sf/l clwsf/ s]gb jf If]qLo PsfO{x?dWo] s;n] ceof; ug]{ egg] s'/f k i6 n]lvg'kyof]{. of] k+lqmsf/ ;xcl:ttjsf] ;"rlsf] ljifo sfof{gjog ug]{ ljz]if sfo{sf/l clwsf/ If]qLo PsfO{nfO{ lbog'kyof]{ egg] wf/0ff /fvb5. s]gb Lo ;+;bn] ljwfg agfp tfklg If]qLo lgsfonfo{ o; k sf/sf] clwsf/ lbg' cfjzos x'g5.!@= /fli6«o gllt lgdf{0fdf s]gb sf] clwsf/ dfly pnn]v ul/ph:t} ;+ljwfgsf]!#cf}+ ;+zf]wgcg';f/ ljsf;sf ljifodf /fli6«o gllt agfpg] clwsf/ s]gb nfo{ lboof], t/ p;sf] To;sf] b'?kof]u u of]. ;g\ @))) sf] d:of}bfn] /fli6«o gllt tyf dfkb08 tf]sg] sfd s]gb nfo{ t lbof] t/ ;Lldt ljifodf dfq. To;dWo] /fli6«o :jf:yo of]hgf, /fli6«o :jf:yo dfkb08, lziff, k]zfsf] dfkb08, s[lif, e"ld k of]u, o'jf, dlxnf dfldnf / v]nsf ljifo dfq s]gb n] x]g'{ cfjzos /x]sf] k fjwfg /fv]sf] 5. ;j{bnlo k ltlglw ;ldlt / ax';+vof k ltj]bgn] /fli6«o gllt agg'k5{, If]qLo PsfO{nfO{ ;dfj]z ub}{ ;xeflutfd"ns k lqmofåf/f cl3a9\g'k5{. /fli6«o gllt s]gb Lo Joj:yflksfn] p;sf] lgwf{l/t ;+/rgfcg';f/ hf/l ul/g'kyof]{, To:t} If]qLo PsfO{sf nflu klg pglx?sf] cfk\mg} ;+/rgfcg';f/sf] ljwflosf x'g' cfjzos lyof] h;n] p;nfo{ cfjzos k/]sf ljifodf sfg'g agfpg ;sf];\. s]gb Lo ljwflosfn] k fgtsf] sfo{if]qleq k/]sf ljifodf ljw]os kfl/t ug{ ;Qm}g, g t o:tf ljifonfo{ ;d]6]/ /fli6«o gllt g} lgdf{0f ug{;s5. ljzjsf s]xl s]xl ;+3Lo d'n'sdf kl/lrt ljifo tyf sfo{sf nflu sfg'gsf] ;+/rgf agfpg s]gb nfo{ cg'dlt lbg] k fjwfg epsf] oxff pnn]v ug'{ pkof]ul x'g]5. hd{gldf s]gb n] lglzrt If]qdf ;+/rgf k fjwfg agfpg;sg] Joj:yf 5. hd{g /fhosf e"ldklt / To; If]qsf] Joj:yfkgsf nflu sfg'g agfpg] clwsf/ s]gb df 5}g. If]qLo ljljwtfnfo{ ;xhls/0f ug]{ jf To;sf nflu ;+/rgf tof/ kfg]{ sfo{ dfq s]gb n] ub{5. k fgtlo cfjzostfnfo{ ;Daf]wg ug]{ cfk\mg} k fjwfgcg';f/ s[ifs tyf hldg dflnssf] Joj:yfkg x'g5. s]gb Lo ;+j}wflgs cbfntn] e"ldkltnfo{ dxtjk"0f{ cj;/ k bfg u/]sf] 5. hd{g ;+ljwfg -;+/rgf Joj:yflksf ;"rl kfl/t ug]{ s]gb sf] clwsf/_ sf] wf/f &% n] e"ldkltsf] ;fj{hlgs ;]jf, ;d'bfo tyf cgo ;fj{hlgs sfg'gsf] ;+:yfut lgsfo, prrlziffsf cfwf/e"t l;4fgt, ;~rf/dfwod tyf rnlrq;fu ;DalGwt sfg'g, lzsf/, ks[lt tyf u fdl0f If]qsf] ;+/If0f, e"ld ljt/0f, If]qLo of]hgf tyf hnfwf/ ;+/If0f / btf{ tyf kl/ro kq;fu ;DalGwt ljifo dfq s]gb n] x]g]{ Joj:yf 5. ;+3Lo ;+/rgfdf cnk;+vos clwsf/sf] ;+/If0f #*

In Austria, implementing legislation must be passed by the States consequent to framework legislation. If a State does not pass such legislation, the Federation may do so. Article 15 (6) of the Austrian Constitution reads: "(6) In so far as framework legislation has been reserved to the Federation, detailed implementation within the framework laid down by federal law is incumbent on State legislatures. The federal law can fix for the issue of the implementing legislation a deadline which may not without the consent of the Senate, be shorter than six months and not longer than one year. If a State does not observe this deadline, competence for the issue of the implementing legislation passes from that State to the Federation. As soon as the State has issued the implementing legislation the federal implementing legislation becomes invalidated. If the Federation has not established any framework, State legislation is free to settle such matters. As soon as the Federation has established a framework, the provisions of State legislation shall within the deadline to be appointed by federal law be adjusted to the framework legislation." The Federal-State Relations Committee of the Parliament of Victoria has produced a very useful report titled "Federalism and the Role of the States: Comparisons and Recommendations." 18 Recognising the powers granted by State Constitutions and the Australian Constitution, the Committee has recommended that the States be free to make their own policy decisions unless there is an overriding national imperative for a single policy for the whole of Australia. The Committee recommended that national policy decisions be made in a way which maximises the possibility of interests within States being represented in the decision-making process and satisfied by the decisions reached. This would require the participation of State Governments to represent those interests particular to their States. Where there is an overriding imperative for national policy making, but there is no distinct national interest, other than an interest in the convenience and efficiency of uniform policy, the decision should be made jointly by the States. Where an overriding imperative makes it necessary to make a national policy decision, and where there are relevant differences of State interest, as well as a distinct national interest, the Committee recommends that the States and the Commonwealth should make the policy decision co-operatively. Where there is an overriding imperative for national policy making, but a nationally uniform system of administration or implementation is not essential to the policy, the responsibility for implementing the national policy ought to reside with distinct State administrations, responsive to State interests. 13. Power sharing in the Regional Units In the regional units, that are multi-cultural, the possibility of power sharing in the executive merits consideration. Power sharing may even be considered in a unit dominated by a single community. Experience in Sri Lanka shows that in the Provincial Councils, while the Opposition dutifully opposed the Governor's Statement of Policy and the Budget, there was unanimity when it came to the passing of statutes. 18 <http://www.parliament.vic.gov.au/fsrc/report3/front/reccos.htm> accessed 27 March 2009. 39 Minority Rights Protection in Federal System

o;}u/l cl:i6«ofdf ;+/rgf;fu ;DalGwt sfg'g sfof{gjog ubf{ klg k fgtlo ljwfg;efaf6 kfl/t x'g'kg]{ k fjwfg 5, s]gb n] agfp/ dfq k'ub}g. s]gb n] kfl/t u/] klg /fhoaf6 kfl/t epg eg] sfof{gjog x'g;qm}g. cl:i6«ofnl ;+ljwfgsf] wf/f!% -^_ df o:tf] pnn]v 5 M ;+/rgf;dagwl sfg'g agfpg] clwsf/ s]gb df /x]tfklg To;nfO{ lj:tfl/t?kdf a'e\mg] / sfof{gjog ug]{ clwsf/ tyf bflotj k fgtlo ljwflosfd} lglxt 5. s]gb n] sfg'g sfof{gjogsf nflu ;do;ldf lgwf{/0f t ug{;s5 t/ o;sf nflu l;g]6sf] ;Ddlt cfjzos k5{, o:tf] ;do;ldf a9ldf Ps jif{;dd / 36Ldf eg] ^ dlxgfegbf klg sd x'g;s5. /fhon] of] ;do;ldfsf] kfngf u/]g eg] To;sf] sf/0f k fgtlo ljwfg;efn] g} cgoyf sfg'g lgdf{0f u/]sf] x'g;s5 hf] s]gb nfo{ hfgsf/l u/fpg'eg] cfjzos 5. /fho;efn] ljwfg kfl/t u/]sf] cj:yfdf s]gb af6 kfl/t ljwfg :jtm vf/]h x'g5. s]gb n] ;+/rgf gagfpsf ljifodf /fho;ef cfk"mvzl lg0f{o lng :jtgq x'g5. t/ s]gb n] ;+/rgf ljw]os kfl/t u/]sf] cj:yfdf /fho;efn] sfof{gjogsf] ;do;ldf ;dfof]hg ug'{k5{.ú les6f]l/of ;+;b\sf] s]gb /fho ;DaGw ;ldltn] lgs} pkof]ul k ltj]bg zlif{s tof/ kf/]sf] 5, ;+3Lotf tyf /fhosf] e"ldsfm t'ngf tyf l;kmfl/;.ú!* /fholjwfgåf/f k bfg ul/psf] zlqm / c:6«]lnofnl ;+ljwfgsf ;DaGwdf ;ldltn] ;Dk"0f{ d'n'ssf nflu Ps;fy nfu" x'g] /fli6«o gllt;fu gaflemg] ;a} ljifodf /fhon] :jtgq gllt agfpg / nfu" ug{;s5 eg]/ l;kmfl/; u/]sf] 5. /fli6«o gllt lgdf{0f ubf{ /fho jf :yfglo hgtfsf] cfjzostf /?lrnfo{ k fyldstf lbg] ;Defjgfsf] prrtd k of]u ug{ klg ;ldltn] l;kmfl/; u/]sf] 5. x/]s lg0f{o k lqmof / lg0f{odf /fho / ToxfFsf jfl;gbfsf] cfjzostf /?lr k ltljldjt x'g'x'kg]{ ;ldltsf] wf/0ff 5. x/]s /fho;/sf/ / pglx?;fu ;DalGwt ljifodf pglx?nfo{ g} ;xeful u/fp/ lg0f{o lng] ceof; ul/pdf :jtm :yfglo :t/n] k fyldstf kfpf5. /fli6«o gllt lgdf{0fsf nflu of] ljlw dxtjk"0f{ /x]sf] 5. t/ /fli6«o lxtnfo{ ;a}n] ;jf]{k/l /fvg}k5{ glltut Ps?ktfsf nflu s] ;xh / k efjsf/l x'g5 egg] ;Gbe{nfO{ cl3 ;f/]/ o;df s;}n] ;Demf}tf ug{ ;Qm}g. o;sf nflu s]gb / /fhon] ;+o'qm?kdf lg0f{o lng] ljlw cjndag ug'{ cfjzos x'g5. /fli6«o gllt s;/l lgdf{0f ug]{ egg] ;DaGwdf cfjzos Joj:yf ul/g'k5{. /fho / s]gb sf leggflegg}?lr / :jfy{ epsf ljifodf t b'j} kif Ps} 7fpFdf a;]/ lg0f{odf k'ug'sf] ljsnk 5}g ;ldlt l;kmfl/; ub{5. /fli6«o gllt lgdf{0fdf Vofn ug'{kg]{ csf]{ dxtjk"0f{ kif s'g ljifo slt dxtjk"0f{ 5 egg] s'/fsf] klxrfg xf]. glltlgdf{0fdf k zf;g jf sfof{gjogsf] Ps?ktf;DaGwL Joj:yf k fyldstfdf gkg{;s5. legg /fhodf legg k zf;g, lhdd]jf/l /?lr x'g;s5 o:tf] ljifodf Ps?ktf vf]hg' cfjzos 5}g. lsgeg] o:tf ljifon] /fli6«o lxtdf c;/ kfb}{gg\.!#= If]qLo PsfO{x?df zlqm af 8kmf 8 If]qLo PsfO{x? ax" ;ff:s[lts 5g\. sfo{sf/lsf of]uotfdf o;sf] k efj kg]{ub{5, zlqm aff8kmff8df klg :jefjtm o;n] k efj kfb{5. ;d'bfo olt Pp6} ;d'bfosf] k efjdf 5 eg] klg zlqm aff8kmff8 k efljt x'g]ub{5. >Ln+sfsf] cg'ejn] s] b]vfpf5 eg] k fgtlo kl/ifb\df ha ue{g/n] gllt / ah]6 k :t't u5{g\ ta k ltkiflx? To;sf] lj/f]w ug'{ cfk\mgf] st{jo g} xf] egg] 7fG5g\ ha ls ljwfg kf; ubf{ eg] o; k sf/sf] lj/f]w x'fb}g, ;j{;ddltn] kfl/t e}/x]sf] x'g5.!* <http://www.parliament.vic.gov.au/fsrc/report3/front/reccos.htm> accessed 27 March 2009. ;+3Lo ;+/rgfdf cnk;+vos clwsf/sf] ;+/If0f #(

The 2000 Bill provided that political parties represented in the regional legislature would have the right to participate in the Board of Ministers in accordance with their respective strengths. A party could of course opt out. Each Ministry would have an executive committee and every member of the regional legislature would be a member of one such committee. Ministers are obliged to consult their respective executive committees. It was thought that such provisions would provide an opportunity for all members to participate in executive decisions and for all communities to share executive power. The APRC made no such proposal, but stated that the regional executive should reflect the pluralist character of the region. The Majority Report stated that while such power sharing could be useful in post-conflict situations it would be a reading ground for corruption as there would be no official opposition. It therefore recommended power sharing in the regional units for a short period. 14. Tamil demand for North-East merger Most Tamils consider the Northern and Eastern Provinces as their traditional homeland, but this is strongly contested by the Sinhalese and the Muslims. It is on the said basis that Tamil parties have been demanding a merger of the North and East. The 13th Amendment provided for the merger of 2 or 3 provinces, but for such decision to be taken solely by the President. The Provincial Councils Act of 1987 provided that the President should not merge the Northern and Eastern Provinces unless he is satisfied that all arms etc. held by separatist militant groups have been surrendered and that there is a cessation of hostilities and violence by such groups. There shall be a poll conducted in the Eastern Province within one year of the merger for the voters of such Province to decide whether or not to continue with the merger. Accordingly, the Northern and Eastern provinces were temporarily merged by President Jayawardena in 1988 and a North-Eastern Provincial Council was elected. Former militant groups which gave up arms and were now opposed to the LTTE took power in the new Council. However, the succeeding President, Premadasa, came to a tacit understanding with the LTTE, asked India to withdraw the Indian Peace Keeping Force and dissolved the Council. The poll in the Eastern Province was repeatedly postponed using Emergency Regulations and the two Provinces were governed by the Centre. In 2006, the Supreme Court held that the temporary merger of the two provinces was illegal as the pre-conditions for such merger, namely the surrender of arms and cessation of hostilities and violence had not been fulfilled. While the Sinhalese and the Muslims in the Eastern Province are very unlikely to support a merger of the two provinces, Tamils of the Eastern Province whose culture is somewhat different from the Tamils of the North may not all support a merger. The issue is compounded by demands by Muslims that in the event of a merger, the non-contiguous Muslim-majority areas should form an autonomous region within the merged province or that the Muslim majority areas in the Ampara district should constitute a separate South-Eastern Regional Unit. The 2000 Bill provided for a temporary merger of the Northern and Eastern Provinces for a period of ten years. During the first five years, the Council will be appointed by the President from among persons nominated by political parties and independent groups and having regard to the ethnic composition of the region. During the second five year period there would be an elected Council. 40 Minority Rights Protection in Federal System

;g\ @))) sf] ljw]osn] If]qLo ljwfg;efdf /fhgllts kf6l{x?sf] k ltlglwtjcg';f/ cyf{t cf cfk\mgf] zlqmcg';f/ ;dfg'kflts 9+un] dlgqd08n u7g ug{ k :tfj u/]sf] 5. o; ljlwcg';f/ x/]s kf6l{n] ;xeflutfsf] cj;/ kfpf5. x/]s dgqfnodf sfo{sf/l ;ldlt x'g5, /fho;efsf x/]s ;b:o o:tf s'g} Ps ;ldltsf ;b:o x'g5g\. dgqlx? sfo{sf/l ;ldltsf] k/fdz{cg';f/ sfd ug{ jfwo x'g5g\. o; ljlw / k lqmofcg';f/ sfo{sf/l lg0f{odf Joj:yflksfsf ;a} ;b:o hxff ;Dk"0f{ ;d'bfosf] k ltlglwtj /xg5, ;xeful x'g;s5g\. sfo{sf/l zlqmsf] ljt/0fsf] k of]hgn] of] ljlw k :tfljt ul/psf] lyof]. ;j{bnlo k ltlglw ;ldltn] eg] o; k sf/sf] k :tfj u/]sf] 5}g t/ k b]zsf] ;dfj]zl rl/q k ltlglwtj x'g]u/l If]qLo sfo{sf/l lgsfo agg'k5{ eg]sf] 5. ax';+vof k ltj]bgn] ågåkl5sf] cj:yfdf zlqmsf] aff8kmff8 cfjzos x'g5, t/ k ltkifl g/xg] / ;a}n] aff8r'f8 u/]/ vfg] Joj:yfn] k f]t;fxg kfpg] epsf]n] e i6frf/sf] eg] ;Defjgf /xg5 eg]sf] 5. oxl ts{nfo{ cl3;fb}{ ax';+vof k ltj]bgn] ;a}nfo{ sfo{sf/l agfpg] cjwf/0ff ;Lldt ;dosf nflu dfq pko'qm x'g] l;kmfl/; u/]sf] 5.!$= pq/ k"j{ ufeg] tfldnsf] dfu pq/l / k"jl{ k fgtx? tfldnsf] hgde"ld x'g\. t/ b'j} k fgt ufeg] k :tfjsf] l;+xfnl / d'l:nd ;d'bfoaf6 s8f lj/f]w eof]. pglx? hfltut cjwf/0ffnfo{ dfq x]/]/ lg0f{o lng' gx'g] c8fgdf lyp, pq/ / k"j{nfo{ ;+o'qm agfpg' d'n'ssf] lxtdf gx'g] pglx?sf] ts{ lyof]. oblk!#cf}+ ;+zf]wgn] @ jf # k fgt ;+o'qm ug]{ k fjwfg /fv]sf] lyof], t/ s;nfo{ ;+o'qm agfpg] egg] lg0f{o /fi6«kltsf] :jljj]slo clwsf/sf?kdf /flvpsf] lyof].!(*& sf] k fb]lzs P]gn] ToxfF xltof/o'qm ågå ;dfkt eof] egg] s'/fdf /fi6«klt ljzj:t gep;dd ol b'o{ k fgtnfo{ eg] PsLs[t ug{ kfpg]5}gg\ eg]/ agb]h nufof]. xltof/wf/l ;d"xn] xltof/ a'emfp/ zflgtk"0f{ /fhgllt ug]{ k lta4tf hgfpg\ egg] p2]zon] o; k sf/sf] k fjwfg /flvpsf] lyof]. k fgtx?nfo{ PsLs[t ug'[{cl3 Ps jif{leq :yfglo hgtfalr hgdt ;+u x ug]{ / pglx?sf] km};nfcg';f/ cufl8 a9\g] klg!#cf}+ ;+zf]wgdf k i6 kfl/psf] lyof]. o;cg';f/ pq/l / k"jl{ k fgtx? /fi6«klt hoj4{g]sf] kfnfdf!(** df c:yfol?kdf PsLs[t klg ep. pq/ k"jl{ k fgtlo kl/ifb\sf] lgjf{rg klg eof]. xltof/ Tofu]sf] k"j{ n8fs' ;d"x / Pn6L6LO{sf] lj/f]wdf plepsf] ;d"x goff kl/ifb\sf] zlqmdf lgjf{lrt ep/ cfof]. oblk kl5nnf /fi6«klt k ]dbf;fn] Pn6L6LO{;Fu c3f]lift ;xdlt sfod ub}{ ef/tnfo{ p;sf zflgt kmf}h lkmtf{ n}hfg eg] / kl/ifb\ lj36g u/]. k"jl{ k fgtsf] lgjf{rg ;+s6sfn nfu" epsf sf/0f af/daf/ :ylut eof], b'j} k fgtdf s]gb Lo ;/sf/sf] zf;g ;~rfng ul/of]. @))^ df ;jf]{rr cbfntn] b'o{ k fgtsf] c:yfol PsLs/0f cj}wflgs lyof] eg]/ km};nf ul/lbof], xltof/ ;dk{0f / ckx/0f tyf lx+;fsf] ;dflkt gepsf] cj:yfdf b'o{ k fgtsf] PsLs/0f sfg'g;ddt gepsf] lg0f{o u of]. l;+xfnl / d';ndfg ;d'bfon] b'o{ k fgtsf] PsLs/0f epsf]df k"jl{ k fgtdf lj/f]w hgfp, k"jl{ k fgtsf tfldn / pq/l /fhosf tfldnalr ;f+:s[lts ljljwtf /x]sf sf/0f pglx? klg PsLs/0fsf] kifdf lypgg\. d'l:nd ;d'bfosf] dfu olt r'lnb} uof] ls pglx? 5'6\6} /fho dfug] cj:yf;dd k'u]. PsLs[t k fgtleq pglx?n] cfk"m ax';+vofdf /x]sf] If]qdf :jfoq k b]z u7g ug]{ ep. d';ndfg k efjdf /x]sf] cdkfnf lhnnfdf blif0f k"jl{ If]qLo PsfO{ gfdsf] 5'6\6} /fho agfpg tof/ b]lvp. @))) sf] ljw]osn]!) jif{sf nflu pq/l / k"jl{ k fgtnfo{ c:yfol?kdf PsLs[t ug{] k fjwfg /fv]sf] lyof]. klxnf] kffr jif{sf nflu /fi6«kltn] /fhgllts kf6l{n] 5fg]sf, :jtgq ;d"x / If]qsf hghflt ;d'bfoaf6 kl/ifb\ agg] k :tfj ul/psf] lyof]. bf]; f] kffr jif{sf nflu lgjf{lrt k ltlglwsf] kl/ifb\ agfpg] k fjwfg /flvpsf] lyof]. ;+3Lo ;+/rgfdf cnk;+vos clwsf/sf] ;+/If0f $)

The Bill further provided that during the period of the temporary merger, there would be a Chief Minister and two Deputy Chief Ministers from the three major communities. The subjects that would be assigned to them were also set up. Important decisions in the Council would be on the basis of double majority, similar to the practice in the Northern Ireland Assembly. For this purpose the Tamil members would be considered as one group and the Sinhala and Muslim members would together form the second group. There were other provisions to safeguard the interests of all communities during the period of temporary merger. The regional public service would reflect the regional and district ethnic composition as far as practicable. There would be a Cultural Committee for each community. An Equality Commission would also be set up. A referendum would be held in the tenth year for the people of the East to decide whether or not to continue with the merger. The arrangement would give the Tamils an opportunity to convince the Sinhalese and the Muslims that they could live together and share power in one regional unit. On the other hand, if the three communities cannot so do, the Sinhalese and the Muslims who together constitute a majority in the Eastern province could decide that the Eastern Province should be separate. 15. Aspirations of Indian Tamils The Indian Tamils are a community that is socially and economically backward. Their fore-parents were brought by the British to work in the plantations in the Central hills. Indian Tamils are a majority in the Nuwara Eliya district in the Central Province and constitute a sizeable percentage in the adjoining Kandy district within the Province as well as in the Sabaragamuwa Province and in the Badulla district of the Uva Province. However, the areas they dominate are not contiguous. Sizeable numbers of Indian Tamils are found in the Northern Province and the Western Province as well. Indian Tamils have been demanding an arrangement that permits some self-rule. However, their non-contiguity does not permit a viable regional unit dominated by them. The Majority Report proposed that an Autonomous Zone Council (AZC) may be established in the areas of authority of certain local authorities in the Nuwara Eliya district that are dominated by Indian Tamils. The AZC would have certain powers in relation to Tamil medium schools, vocational education, agricultural development, animal husbandry and cultural affairs. The Council would have the power to make by-laws while the power to make Statutes will be with the Legislature of the Central Province. All Members of Parliament and Provincial Councillors from the different Provinces belonging to the Indian Tamil community would be members of a non-territorial Indian Tamil Cultural Council (ITCC). In addition, there would be provision for about five nominated members. All members of the ITCC shall be appointed by the President of Sri Lanka. The ITCC was seen as a mechanism to effectively contribute to the economic, social and cultural advancement of Indian Tamils. The AZC would have its own budget, which shall include grants from the Central Budget directly channeled, but with intimation to the executive of the Central Province. The Central Government should also provide an annual block grant for ITCC projects. The APRC proposed a Community Council constituted by members of the various Provincial Councils who belong to the Indian Tamil community. 41 Minority Rights Protection in Federal System

pqm ljw]osn] cnksfnlg PsLs/0fsf a]nf Ps d'vo dgql / b'o{ hgf pk d'vo dgqlx? ToxfFsf d'vo ;d'bfox?af6 /xg] Joj:yf u/]sf] lyof]. pglx?n] s] ug]{ egg] s'/f klg 5' fopsf] lyof]. pq/l cfo/n]08sf] P;]DanL h:t} kl/ifbsf] s'g} klg d"vo lg0f{o bf]xf]/f] ax';+vofn] ug]{ Joj:yf ul/psf] lyof]. Tof] p2]zosf] nflu tldnx? Ps ;d'x tyf l;+xnl tyf d'l:ndx? csf]{ ;d'xsf]?kdf /xg] Joj:yf ul/psf] lyof]. c:yfol PsLs/0fsf a]nf ;a} ;d'bfosf] lxt /Iffsf nflu cgo k :yfjx? klg ul/psf] 5. If]qLo ;fj{hlgs ;]jfn] Jofjxfl/s?kn] ;Dej ep;dd If]qLo tyf lhnnfsf hghfltnfo{ ;dfof]hg u/]/ cl3a9\g] gllt lnopsf] 5. x/]s ;d'bfosf nflu Ps ;f+:s[lts ;ldltsf] Joj:yf 5. o;sf ;fy} ;dfgtf ;ldltsf] klg u7g ul/g] Joj:yf 5. b'o{ k fgt PsLs/0f u/]sf]!) jif{kl5 hgdt ;+u x ul/g] / k b]z k'gm 5'6\ofpg] jf oyfjt cl3a9\g] eg]/ hgtfnfo{ ;f]lwg]5 elgpsf] 5. o;n] tfldnx?nfo{ l;+xnf tyf d';ndfgnfo{ ;Fu} a:g] cyjf Pp6} If]qLo PsfO{df zlqm aff8rf8 u/]/ a:g] egg] ljifodf ;xdt u/fpg ;do k fkt x'g]5. csf{lt/ tlg ;d'bfon] ;xdlt sfod ug{ ;s]gg\ eg] pq/l k fgtdf ax';+vofdf /x]sf d'l:nd / l;+xfnln] pq/l k fgt a]un} /xg'k5{ eg]/ klg lg0f{o lng;s5g\.!%= ef/tlo tdlnsf] ck]iffx? >Ln+sfdf ef/tlo tfldnsf] cj:yf ;fdflhs tyf cfly{s?kdf k5fl8 k/]sf] 5. a]nfotl ;fd fhosf a]nf pglx?sf afh] a/fh'nfo{ cu ]hx?n] dwo kxf8df s[lifsfo{sf] k of]hgn] NofPsf x'g\. dwo k fgtsf] g'jf/f Olnof lhnnfdf ef/tlo tfldnx?sf] afx'no 5. o:t}, ;faf/fufd'jf k fgtsf] sfgbl lhnnfdf tyf pef k fgtsf] af8'nnf lhnnfdf klg pglx?sf] kl/df0f pnn]vo 5. t/ pglx?sf] a;f]jf; /x]sf] If]q ;lggs6 5}g, 5l/P/ /x]sf] 5. pq/l tyf klzrdl /fhox?df klg pglx?sf] ;+Vof pnn]vo 5. ef/tlo tfldnx?n] klg Ps xb;ddsf] :jzf;gsf] clwsf/ dfub}cfpsf 5g\. t/ pglx?sf] 5l/Psf] a;f]jf;sf sf/0f ;/sf/n] rfx]/ klg dfu k"/f ug{ ;ls/x]sf] 5}g, g t Jofjxfl/s sl7gfosf ;ddagwdf pglx?n] ;/sf/nfo{ lrq a'emfpg g} ;s]sf 5g\. ax';+vof k ltj]bgn] :jfoq c~rn kl/ifb\ ef/tlo tfldnsf] k efj If]qdf /x]sf] g'jf/f Olnof lhnnfdf lglzrt :yfglo clwsf/sf] If]qdf :yfkgf ug{;lsg] k :tfj u/]sf] 5. :jfoq c~rn kl/ifb\nfo{ tfldn efiffnfo{ dfwod agfpg] ljbfno, Jofj;flos lziff, s[lif ljsf;, a:t' kfng / ;ff:s[lts dfldnfdf s]xl zlqm k bfg ug]{ k :tfj u/]sf] 5. ljwflosl clwsf/ s]gb Lo k b]zdf /xg] t/ To;cg';f/sf] lgodfjnl agfpg] clwsf/ eg] :jfoq kl/ifb\nfo{ g} lbg] wf/0ff cl3;fl/psf] 5. ;+;bsf ;a} ;b:o tyf ef/tlo tfldn ;d'bfo;fu ;DalGwt ljlegg k fgtsf k fgtlo sfplg;n/ u}/ef}uf]lns ef/tlo tfldn ;ff:s[lts kl/ifb\sf ;b:o x'g] Joj:yf ax';+vof k ltj]bgn] u/]sf] 5. o;cltl/qm kffr dgf]lgt ;b:osf] klg k :tfj ul/psf] 5. >Ln+sfsf] cfo6l;l;lsf ;a} ;b:o /fi6«kltåf/f lgo'qm x'g] Joj:yf 5. ef/tlo tfldnsf] cfly{s, ;fdflhs tyf ;f+:s[lts k j4{gsf nflu k efjsf/l of]ubfg ug{ cfo6l;l;l Ps k4lt xf]. cf~rlns kl/ifb\sf] cfk\mg} ah]6 x'g5, s]gb af6 k fkt ah]6 k ToIf k jflxt x'g5 t/ s]gb Lo k fgtsf] ;Ddltcg';f/ cl3 a9\5. s]gb Lo ;/sf/n] cfo6l;l;l kl/of]hgfsf nflu jflif{s ;xfotf klg k bfg ul/g'kg]{ / ljifonfo{ cfwf/e"t kifsf ;DaGwdf cl3 a9\g' kg{] cfjzostf klg cf}nofopsf] 5. ;j{bnlo k ltlglw ;ldltn] ef/tlo tfldn ;d'bfo;fu ;DalGwt ljljw k fb]lzs kl/ifb\sf ;b:ox?åf/f ;fd'bflos kl/ifb\ u7g ug{ l;kmfl/; u/]sf] 5. ;+3Lo ;+/rgfdf cnk;+vos clwsf/sf] ;+/If0f $!

16. Muslims outside the North and East Muslims live dispersed outside the Northern and Eastern Province and are basically a trading community. In the APRC, Muslim parties pressed for the establishment of a Muslim Community Council similar to the Indian Tamil Community Council. This proposal was accepted. The MuslimCommunity Council would consist of Muslim members of Provincial Councils other than those of the Northern and Eastern Provinces. The Chairman of the Muslim Community Council and the Indian Tamil Community Council would be observers at the Chief Ministers' Council. 17. Form of government at the Centre Both the Independence Constitution and the 1972 Constitution provided for a Parliamentary form of government. During the deliberations of the Constituent Assembly of 1970, Jayewardene, who was then the Deputy Leader of the UNP, proposed that Sri Lanka should have an Executive Presidency. This was opposed by his own party and the 1972 Constitution retained a Parliamentary form of government. However, Jayewardene became Prime Minister in 1977 and used his 5/6th majority in Parliament to set up an Executive Presidency. The 1978 Constitution further strengthened the Presidency. The President is the Head of State, Head of Government and the Commander in Chief of the Armed Forces. He has complete immunity from suit, including for his executive actions. The impeachment of the President is virtually impossible in practice. The only safeguard was that the President could hold office only for two six-year terms. The incumbent President, Rajapaksa, abolished the term limit too and Sri Lanka now has one of the world's strongest Presidencies. The strong Presidency has contributed in no small manner to the non-implementation of the 13th Amendment. The Provincial Governor being the powerful President's nominee is able to interfere in the affairs of the Council, as has been evident in some Councils, notably the Eastern Provincial Council. Both the 2000 Bill and the APRC proposed a return to the Parliamentary form of government. The President would be the ceremonial Head of State. There would be a Vice President from a community different to that of the President. 18. Power sharing at the Centre One drawback of the 2000 Bill was the absence of power sharing at the Centre by way of a second Chamber. Such a Chamber is characteristic of almost all countries that are federal or quasi-federal. It is an instrument that permits various regional units and different communities to share power at the Centre. The Majority Report proposed a second Chamber with equal representation from the various regional units. The representatives would be elected by the regional assembly on the basis of proportional representation. This, the Majority Report stated, would facilitate the representation of different communities and small political parties. The APRC proposed a 75-member second Chamber. Each regional unit would nominate 7 members while there would be 5 members each from the Muslims and Indian Tamil Community Councils. The President would dominate 2 members from unrepresented groups. Sri Lanka has smaller ethnic groups such as the Malays, Burghers and the aboriginal Veddhas. 42 Minority Rights Protection in Federal System

!^= pq/ / k"j{aflx/ d';ndfg pq/l / k"jl{ k fgtaflx/ d';ndfg 5l/P/ /x]sf 5g\, d'votof pglx? Jofkf/df ;+nug 5g\. ;j{bnlo k ltlglw ;ldltdf ef/tlo tfldn ;fd'bflos kl/ifb\ u7g ul/ph:t} d';ndfgn] klg dl:nd sdo'lg6l sfplg;n rflxof] eg]/ bafa lbpsf] pnn]v 5. of] k :tfj :jlsf/ klg ul/of]. pq/l / k"jl{ k fgtx?egbf aflx/ /x]sf d';ndfgx?sf nflu d'l:nd sdo'lg6l sfplg;n u7g epsf] xf]. d'l:nd ;fd'bflos kl/ifb\sf cwoif tyf ef/tlo tfldn ;d'bfo kl/ifb\nfo{ d'vodgqlsf] kl/ifb\n] lg/lif0fdf lng5.!&= s]gb Lo ;/sf/sf] :j?k :jtgq ;+ljwfg /!(&@ sf] ;+ljwfgn] ;/sf/sf] ;+;blo :j?k k bfg u of].!(&) sf] ;+ljwfg;efsf] ax;sf a]nf o'pgklsf ttsfnlg pkg]tf hojw{g]n] >Ln+sfdf Pshgf sfo{sf/l cwoif x'g'k5{ eg]/ ljrf/ /fv]. t/ pgs} kf6l{n] o;sf] lj/f]w u of], ;/sf/sf] ;+;bsf] :j?k;fu!(&@ sf] ;+ljwfgsf] ;+/If0f ub{5. ;g\!(&& df hojb{g] k wfgdgql ep / kffr jf ^ k6s ;+;bdf ax'dt NofP/ sfo{sf/l /fi6«kltsf] lhdd]jf/l klg lgjf{x u/].!(&* sf] ;+ljwfgn] /fi6«ktlo lhdd]jf/lnfo{ yk ;jn agfpg] sfd eof]. /fi6«kltnfo{ ;jf]{rr lhdd]jf/l k bfg ul/of] /fi6«sf k d'v, ;/sf/sf k d'v / k/d ;]gflwklt. d'n'ssf k"0f{ /Ifs dflgpsfn] sfo{sf/l clwsf/sf] clgtd ;Ldf /fi6«klt g} x'g]ep. /fi6«kltnfo{ dxfleof]u nufp/ sf/afxl ug]{ ;Defjgf Jojxf/tM sl/j sl/j c;dejh:t} agof]. /fi6«kltnfo{ s';l{af6 x6fpg] Ps dfq af6f] kbfjlwsf] ;dflkt b]lvof] >Ln+sfsf] ;+ljwfgn] /fi6«kltnfo{ b'o{ kbfjlw;dd /fi6«klt agg cg'dlt lbg5 / Ps kbfjlw ^ jif{sf] x'g5. jt{dfg /fi6«klt /fhkfifn] b'o{ kbfjlwsf] k fjwfg vf/]h u/]/ >Ln+sfnfO{ ljzjs} ;jf{lws zlqmzfnl /fi6«kltsf] d'n's agfpsf 5g\. ;jn /fi6«kltn] ;+ljwfgsf]!#cf}+ ;+zf]wg sfof{gjog u/fpg] lbzfdf eg] of]ubfg lbpgg\. k fgtlo ueg{/ klg zlqmzfnl /fi6«kltaf6 dgf]lgt JolQm epsf sf/0f pm klg zlqmzfnl x'g]eof] h;n] k fgtlo kl/ifb\nfo{ ;d]t c;/ kfl//x]sf] 5. o:tf pbfx/0f w]/} 5g\ vf;u/l k"jl{ k fgtlo kl/ifb\df o;sf a9l b[i6fgt e]l6g5g\. ;g\ @))) sf] ljw]os / ;j{bnlo k ltlglw ;ldltn] ;/sf/sf] ;+;blo :j?k cjndag ug{ k :tfj u/]sf 5g\. /fi6«klt d'n'ssf] cfn+sfl/s k d'v x'g] l;kmfl/; ul/psf] 5. legg ;d'bfoaf6 -/fi6«kltsf] ;d'bfoegbf legg_ pk/fi6«klt lgo'qm ul/g'kg]{ k fjwfg 5.!*= s]gb df zlqm af 8kmf 8 ;g\ @))) sf] ljw]osdf Ps sdhf]/l s] 5 eg] s]gb df zlqmsf] ;fem]bf/l s;/l x'g'k5{ egg] ljifodf vf; pnn]v ul/psf] 5}g. ljzjsf ;a} ;+3Lo jf cw{ ;+3Lo d'n'sdf s]gb Lo ;/sf/sf] :j?ksf af/]df k i6 kfl/psf] b]lvg5. o;n] If]qLo tyf k fgtlo PsfO{ tyf ljlegg ;d'bfonfo{ s]gb df /x]/ zlqmsf] pkof]u ug]{ cj;/ k bfg ub{5. ax';+vof k ltj]bgn] ljlegg If]qLo PsfO{af6 ;dfg k ltlglwtj /xg]u/l s]gb Lo ;/sf/sf] u7g x'g'kg]{ k :tfj u/]sf] 5. cfg'kflts k ltlglwtjsf] cfwf/df If]qLo ;ef u7g x'g] / To;s} k ltljdj s]gb df b]lvg'kg]{ l;kmfl/; 5. ax';+vof k ltj]bgn] ljlegg ;d'bfosf] k ltlglwtj / ;fgf /fhgllts bnsf] klg ;xeflutf x'g]u/l s]gb sf] u7g x'g'kg]{ ;'emfj lbpsf] 5. ;j{bnlo k ltlglw ;ldltn] &% ;b:olo bf]; f] RofDa/sf] k :tfj u/]sf] 5. x/]s If]qLo PsfO{n] & ;b:o 5gf]6 u/]/ k7fpg] h;df k To]saf6 d';ndfg tyf ef/tlo tfldn ;d'bfo kl/ifb\af6 % ;b:o /xg'kg]{ l;kmfl/; ul/psf] 5. k ltlglwtj rog x'g g;s]sf] ;d'bfoaf6 /fi6«kltn] b'o{ ;b:o dgf]lgt ug]{ k fjwfg 5. >Ln+sfdf dn], a'/3]/ / cflbjf;l e]4f ;fgf hghflt ;d'bfox? x'g\. ;+3Lo ;+/rgfdf cnk;+vos clwsf/sf] ;+/If0f $@

19. Minority safeguards The 2000 Bill provided that State institutions shall reflect the pluralist character of Sri Lankan society. The provision was a Principle of State Policy. While the Majority Report proposed that the Constitutional Court, Supreme Court and Court of Appeal should shall reflect the pluralist character both the Majority Report and the APRC proposed that the Cabinet of Ministers at the Centre should, in principle, reflect the pluralist character and be representative of the regional units. A concern, especially of the minorities, is that emergency powers of the Centre to intervene in the regional units could be misused to interfere with the minority-dominated regions and to even dissolve such regional administrations. To assuage such fears, the 2000 Bill permitted such intervention only when there is a "clear and present danger" to the unity and sovereignty of the Republic and for the matter to be reviewed by a Tribunal. 20. Constitutional Council The 2000 Bill, Majority Report and the APRC all proposed the setting up of a Constitutional Council as a mechanism that provided for a national consensus across party and ethnic lines in the matter of appointments to top positions. The original proposal in the 2000 Bill was inspired by the 1990 Constitution of Nepal. The Constitutional Council proposed in the 2000 Bill would be representative of different parties and communities. Appointments to Superior Courts, high positions such as Attorney-General, Ombudsman and Auditor-General and to independent Commissions (Public Service, Elections, Police, Human Rights, Bribery and Corruption etc) would be with the approval of or on the recommendation of the Constitutional Council. The Seventeenth Amendment, adopted in 2001, set up a Constitutional Council which would consist of the Prime Minister, Speaker, Leader of the Opposition, one person appointed by the President, five persons nominated jointly by the Prime Minister and the Leader of the Opposition and one person nominated by a majority of MPs belonging to parties and independent groups other than those to which the Prime Minister and the Leader of the Opposition belong. Of the five persons jointly nominated by the Prime Minister and the Leader of the Opposition, three would be appointed in consultation with the MPs belonging to the respective minority groups to represent minorities. The appointments of Judges of the Supreme Court and Court of Appeal, members of the Judicial Service Commission, Attorney-General, Auditor-General, Inspector-General of Police, Ombudsman and Secretary-General of Parliament would need the approval of the Constitutional Council. No person shall be appointed as Chairman or member of the Elections Commission, Public Service Commission, National Police Commission, Human Rights Commission, Bribery or Corruption Commission, Finance Commission and Delimitation Commission unless on the recommendation of the Council. The Seventeenth Amendment, clearly a restriction of the Executive Presidency, was not fully implemented. The first Constitutional Council functioned fairly well but an Elections Commission was not appointed due to the President not agreeing to the Council's nominee as Chairman and the Council was not prepared to nominate another. The second Council was not appointed ostensibly due to a dispute as to what "parties and independent groups other than those to which the Prime Minister and the Leader of the Opposition belong" meant. The Seventeenth Amendment did have some deficiencies as it was hastily passed in Parliament and there is no doubt that some provisions needed change. These issues were gone into in detail by a Select Committee. The draft report of the Committee is in the public domain. The report could not be finalized as two Members of the United National Party who were nominated to the Committee joined the Government and the UNP did not recognize them as their nominees. However, after the dissolution of the 2004 Parliament, the UNP publicly stated that they accept the recommendations contained in the draft report. 43 Minority Rights Protection in Federal System

!(= cnk;+vos ;'/Iff ;g\ @))) sf] ljw]osn] /fhosf ;+u7gx?df >Ln+s]nL ax';f+:s[lts rl/q k ltljldjt x'g'k5{ eg]sf] 5. o;}u/l ax';+vof k ltj]bgn] ;+j}wflgs cbfnt, ;jf]{rr cbfnt / k'g/fj]bg cbfntdf ax'ntf JoQm x'g'kg]{ wf/0ff /fv]sf] 5, ;j{bnlo k ltlglw ;ldltsf] k ltj]bgdf klg oxl l;kmfl/; ul/psf] 5. oxl k fjwfg >Ln+sfsf] /fli6«o glltn] axg ug'{kg]{ wf/0ff ol k ltj]bgx?sf] 5. ax';+vof k ltj]bg tyf ;j{bnlo k ltlglw ;ldltn] s]gb Lo dlgqkl/ifb\df >Ln+sfsf] ;Dk"0f{ :j?k k ltljldjt x'g'kg]{ l;kmfl/; u/]sf 5g\. cnk;+vos ;d'bfonfo{ a]jf:tf ug]{ If]qLo k zf;g tyf ;+ogqnfo{ vf/]h ug{;sg];ddsf] ;+s6sfnlg clwsf/ s]gb df 5, hf] b'?kof]u x'g;s5. cgfjzos x:tif]ksf] ;Defjgf x'g;sg] qf; kfn]/ :yfglo lgsfo a;]sf] x'g5. o:tf] qf; Go"gLs/0f ug{sf nflu ;g\ @))) sf] ljw]osn] Pstf / u0ftflgqs ;fj{ef}ldstfdf df}h'b k i6 vt/fú gb]lvp;dd x:tif]k ug{ ;lsgg eg]sf] 5, o;sf] k'g/jnf]sg ug{ c:yfol lgsfo lgo'qm ul/g] k fjwfg klg /fv]sf] 5. @)= ;+j}wflgs kl/ifb\ ;g\ @))) sf] ljw]os, ax';+vof k ltj]bg / ;j{bnlo k ltlglw ;ldlt ;a}n] prr kbdf lgo'lqm ubf{ ckgfpg'kg]{ k4ltsf af/]df udel/?kn] s'/f p7fpfb} /fhgllts bn / hghfltsf alr /fli6«o ;xdlt sfod u/]/ ;+j}wflgs kl/ifb\sf] u7g ug{ l;kmfl/; u/]sf 5g\. ;g\ @))) sf] d:of}bf g]kfnsf]!(() sf] ;+ljwfgaf6 clek ]l/t b]lvg5. ;g\ @))) sf] d:of}bfdf ;+j}wflgs kl/ifb\n] ljlegg bn / ;d'bfosf] k ltlglwtj x'g'k5{ eg]sf] 5. cbfntsf jl/i7 clwsf/l, h:tf] ls dxfgofoflwjqmf, cf]da'8\;dofg, dxfn]vf k/lifs tyf :jtgq cfof]u -;fj{hlgs ;]jf, lgjf{rg, k x/l, dfgjclwsf/, 3"; tyf e i6frf/cflb_ lgo'lqm ubf{ ;+j}wflgs kl/ifb\sf] l;kmfl/;sf cfwf/df ul/g'k5{. ;g\ @))! df epsf]!&cf}+ ;+zf]wgn] k wfgdgql, ;efd'v, k d'v k ltkifl g]tf, /fi6«kltåf/f lgo'qm Ps k ltlglw, k wfgdgql tyf ljkifl kf6l{sf g]tfåf/f ;+o'qm?kdf dgf]lgt % JolQm, ;+;b ;b:ox?af6 dgf]lgt Ps hf] k wfgdgql tyf k ltkifl bnegbf aflx/ :jtgq ;d'bfosf] k ltlglwtj u5{, ;lxtsf] ;+j}wflgs kl/ifb\ u7g ug]{ Joj:yf u/]sf] 5. k wfgdgql / ljkifl bnsf g]tfn] dgf]lgt ug]{ % ;b:odf # hgfsf] dgf]gog ;+;b\df k ltlglwtj ug]{ cnk;+vos ;d'bfosf ;ef;bsf] k/fdz{df ul/g] Joj:yf 5. ;jf]{rr cbfntsf GofofwLz tyf k'g/fj]bg cbfntsf GofofwLz, Goflos ;]jf kl/ifb\sf ;b:o, dxfgofoflwjqmf, dxfn]vf k/lifs, k x/l dxflg/lifs, cf]da'8\;dofg tyf ;+;b\sf] dxf;lrj lgo'lqm ubf{ ;+j}wflgs kl/ifb\sf] :jls[lt k fkt ug'{ cfjzos 5. lgjf{rg cfof]usf ;b:o jf cwoif, lghfdlt ;]jf kl/ifb\, /fli6«o k x/l cfof]u, dfgjclwsf/ cfof]u, 3"; jf e i6frf/ cfof]u, ltqlo cfof]udf lgo'lqm ubf{ kl/ifb\sf] l;kmfl/;ljgf ug{ ;lsgg. sfo{sf/l /fi6«klttjsf ;DaGwdf!& ;+zf]wgn] s8fosf ;fy hf] Joj:yf u/]sf] lyof] Tof] eg] k"0f{?kn] nfu" epg. klxnf] ;+j}wflgs kl/ifb\n] /fd } sfd u/]sf] lyof] t/ lgjf{rg cfof]udf lgo'lqm ubf{ /fi6«kltsf] c8fgsf sf/0f kl/ifb\sf] ;xdlt pnn+3g x'gk'uof]. kl/ifb\n] h;nfo{ k d'v lgjf{rg cfo'qm l;kmfl/; u/]sf] lyof] To;sf 7fpFdf csf]{ JolQm lbg /fi6«kltn] eg] t/ kl/ifb\n] dfg]g. ljjfbs} sf/0f bf]; f] kl/ifb\sf] u7g klg h;/l x'g'kyof]{, x'g ;s]g. k wfgdgql / k ltkifl g]tfsf bnot/ k ltlglw 5gf]6 ug]{ ljifodfú ljjfb epsf] lyof]. o;/l ljjfb l;h{gf x'g'sf] k5fl8 ;qf}+ ;+zf]wg xtf/df ul/g' klg Ps d'vo sf/0f /x]sf] 5 h;nfo{ kfl/t ubf{ kof{kt dfqfdf ;+;b\df 5nkmn x'g kfpsf] lypg, o;df s]xl kl/jt{g :jfefljs lyof]. kl5 5gf]6 sld6ln] k fjwfgsf ljifodf ulxl/p/ cwoog ubf{ ljjfbsf ljifo km]nf kf of]. sld6lsf] d:of}bf k ltj]bg ;fj{hlgs 8f]d]gÚ df /flvof]. sld6ldf l;kmfl/; ul/psf b'o{ ;b:o ;/sf/df ;fd]n epkl5 k ltj]bg k"0f{ x'g kfpg. o;sf ;fy} pglx?sf] kf6l{n] pglx?nfo{ cfk\mgf ;b:o dfgg c:jlsf/ ul/lbof]. oblk @))$ df ;+;b\ g} lj36g epkl5 ;f] kf6l{n] d:of}bf k ltj]bgdf /fv]sf ljifonfo{ :jlsf/ u of]. ;+3Lo ;+/rgfdf cnk;+vos clwsf/sf] ;+/If0f $#

The Eighteenth Amendment, in 2010, abolished the Constitutional Council, set up a Parliamentary Council whose "observations" would be sought by the President in making appointments to the offices and Commissions mentioned in the Seventeenth Amendment and also took away certain powers of the Elections Commission. 21. The identity issue Communities everywhere are asserting their identities and demanding not just equality but also a share of State power. Dispersed communities demand equality, just representation in the legislature and executive, language and cultural rights, equal opportunities in education, jobs etc. Concentrated communities go further and ask for opportunities to manage own affairs. This demand for clear share of State power is an exhibition of cultural identity in political form. There being no benevolent majorities as much as there are no benevolent dictators, most majority communities resist demands for a share of state power, at least initially. But most have realized the need to share power and re-structured the State to accommodate minorities (e.g. Spain, Belgium, United Kingdom, Indonesia) and thereby prevented possible secession. One of the Tamil demands has been their recognition as a distinct nationality as opposed to a 'minority.' The Majority Report proposed that the People of Sri Lanka shall be described in the Constitution as being composed of "the constituent peoples of Sri Lanka". The right of every constituent people to develop its own language, to develop and promote its culture and to preserve its history and the right to its due share of State power including the right to due representation in institutions of government shall be recognized without in any way weakening the common Sri Lankan identity. This shall not in any way be construed as authorizing or encouraging any action which would dismember or impair, totally or in part, the territorial integrity or political unity of the Republic. 22. Other safeguards A strong Bill of Rights is essential for the safeguarding of the rights of individuals as well as groups. The 2000 Bill, Majority Report and APRC all proposed a strong Bill of Rights with not only civil and political rights as present but also social, economic, cultural, women's & children's rights in keeping with trend worldwide. The Majority Report and APRC went further to propose the recognition of group rights. Since 1972, there is only pre-enactment judicial review of legislation. Both documents proposed post-enactment judicial review of legislation. A Constitutional Court composed of judges with the necessary expertise was also proposed. The supremacy of the Constitution shall be recognized. All actions of the Centre and of the Provinces inconsistent with the Constitution shall be void. 23. Language While the mother tongue of Tamils, Muslims and Indian Tamils who together constitute more than 25% of the population is Tamil, Sinhala was made the only official language replacing English in 1956. This was given constitutional status in 1972. The 13th Amendment provided that Tamil 'also' would be an official language and English was a made a 'link' language. Despite this, serious questions of implementation have arisen. The 2000 Bill, Majority Report and APRC all proposed that Sinhala and Tamil be given complete parity of status as official languages. 44 Minority Rights Protection in Federal System

;g\ @)!) df epsf]!* ;+zf]wgn] ;+j}wflgs kl/ifb\nfo{ vf/]h ul/lbof]. To;sf 7fpFdf ;+;blo kl/ifb\ u7g ul/of] h;df cfof]u tyf lgsfox?sf nflu /fi6«kltåf/f ul/g] lgo'lqmsf] lgu/fglú ;+;blo ;ldltn] ug]{eof]. lgjf{rg cfof]usf s]xl clwsf/ klg lems]/ kmfng] sfd eof]. @!= klxrfgsf] d'2f cfk\mgf] klxrfgsf nflu hxff;'s}sf] ;d'bfo s8f ep/ af]n5, ;dfgtfsf] dfq s'/f xf]og, /fhozlqmsf] clwsf/df klg ;xeflutf vf]h5. 5l/P/ /x]sf] ;d'bfon] ;dfgtfsf] clwsf/ dfubf Joj:yflksfdf k ltlglwtj t ;Dej x'g5 t/ :jfoqtfsf] clwsf/ k"/f x'g ;Qm}g. sfo{sf/l, efiff / ;+:s[ltsf] clwsf/, lziffdf ;dfgtfsf] clwsf/, hflu/cflb ljifodf klg pglx?sf dfu /xg5g\. Ps} If]qdf /x]sf gful/s eg] ;+ul7t ep/ cl3a9\5g\, cj;/sf nflu dfu /fv5g\ / cfk\mg} If]q agfpg vf]h5g\. /fhozlqmdf k i6 ;xeflutfsf nflu /fhgllts ;+/rgfdf ;f+:s[lts kl/rosf] k bz{g cfjzos x'g5. /fhozlqmdf ;fem]bf/l rfxg] ;d'bfodwo] To;sf] dfu k"/f epsf] b]lvg5 hf] ax';+vos 5 jf ;+ul7t?kdf cl3a9]sf] 5. t/ ;sf/ftds kif s] 5 eg] cfh /fhozlqmdf ;fem]bf/l cfjzos 5 egg] oyfy{ w]/}n] a'em]sf 5g\, o;sf nflu /fho k'gm;+/rgf ug{ klg tof/ ep/ a;]sf 5g\. d'n'ssf cnk;+vos ;d'bfonfo{ ;dfof]hg ug{ -pbfx/0fsf nflu :k]g, a]lnhod, a]nfot, O08f]g]l;of_ cfjzos /x]sf] :jlsf/ ub}{, o;f] gul/pdf ljb f]x x'g] oyfy{nfo{ cftd;ft\ u/]sf 5g\. tfldnsf ljlegg dfux?dwo] Ps dfu klxrfg g} xf], cnk;+vosú eg]/ legg Jojxf/ gul/of];\ egg] pglx?sf] rfxgf b]lvg5. ax';+vof k ltj]bgn] >Ln+sfsf hgtfnfo{ ;+ljwfgdf ;+j}wflgs gful/s jf >Ln+sfsf] cif'00f c+uú eg]/ pnn]v ug{ k :tfj u/]sf] 5. x/]s ;+j}wflgs gful/ssf clwsf/df p;sf] efiff, ;+:s[lt, Oltxf; / /fhozlqmdf ;xeflutf cfjzos 5, /fhon] s'g} gful/snfo{ o:tf] cj;/ k bfg u/]g eg] >Ln+sfsf] cfd kl/ro sdhf]/ agfpsf] ;fljt x'g]5 elgpsf] 5. gful/snfo{ sdhf]/ agfpg] b':k of; zlqmsf] k of]u ub}{ st}af6 epdf jf o;sf nflu s;}nfo{ b'?t;fxg ul/pdf To;af6 k'ug upsf] gf]s;fgl u0ftflgqs /fhgllts Pstf jf ef}uf]lns cv08tfsf] Iflt dflgg]5 @@= cgo ;'/Iff clwsf/sf] ;zqm ljw]os JolQm / ;d"xsf] clwsf/sf] ;'/Iffsf nflu dxtjk"0f{ 5. ;g\ @))) sf] ljw]os, ax';+vof k ltj]bg tyf ;j{bnlo k ltlglw ;ldlt ;a}n] cfw'lgs ljzjn] ckgfpsf clwsf/df cfwfl/t k j[lqnfo{ k5\ofpfb} gful/s / /fhgllts clwsf/ dfq xf]og, ;fdflhs, cfly{s / ;ff:s[lts tyf dflxnf / afnaflnsf;dagwl clwsf/af/] ;an Joj:yf cfjzos /x]sf] l;kmfl/; u/]sf 5g\. ax';+vof k ltj]bg / ;j{bnlo k ltlglw ;ldltn] ;d"x clwsf/df klg hf]8 lbpsf 5g\. ;g\!(&@ b]lv ljwflosfsf] sfg'gl k'g/jnf]sg ukmsf] dfq ljifo ag]sf] 5. b'j} k ltj]bgn] cfjlws?kdf ljwflosfsf] sfg'gl k'g/jnf]sg x'g'kg]{df hf]8 lbpsf 5g\. ;+j}wflgs cbfntdf cfjzos lj1tf xfl;n u/]sf GofofwLz /xg'kg]{df klg b'j}sf] l;kmfl/; 5. ;+ljwfgsf] ;jf]{rrtfnfo{ dfgotf k bfg ul/g'k5{. s]gb / k fgtsf ;a} sfo{ hf] cfk;df afe\m5g\, To;nfO{ ;+j}wflgs?kd} ldnfpg'k5{ jf x6fpg'k5{. @#= efiff Ps} 7fpFdf a;f]jf; u/]sf ef/tlo tfldn / d';ndfgsf] dft[efiff tfldn 5. ol If]qdf @% k ltztegbf a9l ;+Vof tfldnsf] 5. sfof{nodf sfdsfhsf] cf}krfl/s efiff c+u ]hlnfo{ lj:yfkg ub}{ ;g\!(%^ b]lv l;+xfnf x'gyfn]sf] xf].!(&@ df cfp/ o;nfo{ ;+j}wflgs dfgotf k bfg ul/of].!#cf}+ ;+zf]wgn] tfldnnfo{ klgú sfof{nosf] sfdsfhsf] efiff agfolbof], c+u ]hlnfo{ eg] ;Dks{ efiffsf?kdf k of]u ul/of]. o;cltl/qm sfof{gjogsf] udel/ k Zg eg] hxffsf] ToxL+ 5 Jojxf/df nfu" x'g ;ls/x]sf] 5}g. ;g\ @))) sf] ljw]os, ax';+vof k ltj]bg / ;j{bnlo k ltlglw ;ldlt ;a}n] l;+xfnf / tfldn b'j} efiffnfo{ sfof{nosf] sfdsfhl efiffsf?kdf k"0f{tm ;dfg?kn] nfu" ug'{k5{ eg]sf 5g\. ;+3Lo ;+/rgfdf cnk;+vos clwsf/sf] ;+/If0f $$

24. Local Government With localized ethnic communities all over the country, strong local government would permit such communities themselves to take decisions that concern their immediate environment. Both the Majority Report and the APRC proposed that local authorities be recognized by the Constitution as a tier of Government and given much more powers than at present. The implementation of Provincial Statutes relating to subjects listed in a Schedule to the Constitution would be a matter for local authorities. Local authorities would not have legislative power. They would, however, have power to make by-laws. Such by-laws should be laid before the Provincial Legislature but, in view of local authorities being a tier of Government, would not need Legislature approval. Such an arrangement would be an empowerment of the people in their own localities. Further, this would also afford localized ethnic communities to be in control of their living environment. The APRC went further to suggest how this empowerment could be strengthened through the Grama Sabhas/ Urban Ward Sabhas. People's participation in governance will be through Grama Sabhas which will consist of about a hundred families at village level and through Veedi (Street) Sabhas which will consist of about two hundred families at the street level in the urban areas. It is by the Grama/Veedi Sabhas that the local needs will be listed and prioritized at their meetings and subsequently monitored and audited. 25. Constitutional amendments The manner in which the Constitution could be changed has a bearing on power sharing arrangements. Minorities are naturally concerned to ensure that such arrangements cannot be changed without their consent. Presently, Provincial Councils do not enjoy any special protection. They can be abolished by an ordinary constitutional amendment, by a 2/3rds majority in Parliament. Both the 2000 Bill and the Majority Report proposed that any amendment of constitutional provisions relating to devolution need the approval of the regional legislatures. In case all regional legislatures do not approve, the amendment will apply only in the regions that have consented, resulting in asymmetry. The APRC proposed that any constitutional amendment should need a 2/3rds majority in both Houses of Parliament. 45 Minority Rights Protection in Federal System

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Minority in Russian Constitution: Principles of Minority Rights Protection Dmitry Dubrovsky 19 1. Background To improve the situation with the rights of people belonging to various minorities, including religions, ethnic, racial, social, sexual, and others, first of all, the legal discourse has to be analyzed. The fact is that in current legal discourse, in various political and legal documents, the definition of minority is very controversial. For example, in Russian legislation there is a special criteria to identify an indigenous people - not up to 50 000 members. The problem with that kind of criteria is quite clear: in number of cases political elites of various cultural groups consciously manipulate the statistics to get additional privileges bringing the status of "indigenous people." On the other hand, the numbers does not necessarily represent the real access to political power; black population in apartheid South Africa, which was dominating in terms of numbers, but was extremely discriminated, is a good example here. To avoid debates, it is possible to propose the following definition of minority: a minority as term for description is a special kind of relation in society, which occurs where we have a group based on "features" (race, gender, ethnicity, religion, and so on) with any type of inequality, which might be represented in its size, political representation and access to resources. At the same time, very often political elites of various cultural groups use the 'minority problem' to establish its special status to manage them, and, on the other hand, to strengthen the cultural borders and loyalty of a person not the civil state, but to a specific cultural group. This is the reason why it is possible to concentrate mainly on the formula 'rights of people belonging to various cultural minorities'. This seems to be particularly important because of serious contradictions between the personal character of human rights and the so called collective rights staying beyond the idea of minority rights as rights of specific groups. At the same time, from the perspective of liberal state, state of Rule-of-Law, the four criteria have to be implemented into the constitutional legislation. 2. Non - discrimination Violations of rights of people belonging to different types of cultural groups, usually covered as 'discrimination' have to be divided into several clusters. 19 Ph.D. in Ethnology, Associate Professor, Director of Human Rights program at Department of Liberal Arts and Science, St. Petersburg State University. An expert in human rights in contemporary Russia, he specializes in topics such as multiculturalism and human rights, freedom of speech and consciousness, history and transitional justice. 46 Minority Rights Protection in Federal System

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First of all, direct discrimination, in the situation when legislation or real practices of its implementation directly strike any person on the base of its religion, sex, race, ethnic or social identities. Secondly, any normative statements, administrative measures or practices, stimulating the real discrimination. Thirdly, the normative statements, administrative measures or practices, disproportionately affecting various national minorities, and, finally, norms, measures and practices, which are not affecting disproportionately different minorities, but are understood by various minorities as threats. Of course, specific answers to the above-listed various types of discrimination have to be diverse. The preamble to the Russian Federation Constitution adopted in 1993 includes a special definition of Russia as country of various nationalities (e.g. ethnic groups), where all people are equal without any difference of their ethnic, religious, race, social, and other origin. Principles of non-discrimination in the Russian Constitution are shortly described in Chapter 2, concerning the Rights of Man and Citizen. Fist of all, All forms of limitations of human rights on social, racial, national, linguistic or religious grounds shall be banned. (Ch. 2, Apt. 19) At the same time, all groups created on the base of hate to different race, ethnic, religious, etc are strongly prohibited: The creation and activities of public associations whose purposes and actions are aimed at a forced change of the fundamental principles of the constitutional system and at violating the integrity of the Russian Federation, at undermining its security, at setting up armed units, and at instigating social, racial, national, and religious strife shall be prohibited (Ch. 2, Apt. 13.5). One of the main challenges here is the real implementation of these constitutional norms. On the one hand, the legislation, including Russian Criminal Code, includes specific punishment for those who commit crimes on the bases of race, ethnic, or religious characteristic of the victims. In American legal tradition this criminal act is qualified as "hate crime". Also, hatred groups organized on the principles of religious, racial, and ethnic hate, are also additionally punished by the law. The most controversial affair is punishment for symbolical strife as the issue of freedom of speech on the one hand, and limits of these sentiments at all. The famous scandal with cartoons on Prophet Mohammad could be a good example. Critics could argue that this kind of group sentiments' advocacy rather provides additional tools to restrict freedom of speech as well as breaks the border between secular state and religious groups, because political elites may very often misuse this legislation to strengthen their symbolical power. This is the reason to provide the special notion of the secular state in the Constitution of Russian Federation A.. The Russian Federation is a secular state. No religion may be established as a state or obligatory one B.. Religious associations shall be separated from the State and shall be equal before the law. (Apt 14) 47 Minority Rights Protection in Federal System

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The principles of secular state could be promoted in various ways - through the so called "civil religion model' (as the US), equal representation model (as Germany), and "religious-free" state model (as France). Of course, the choice between these models has to be done on basis of current situation, political legacy, and the level of possible agreement between the religious minority which could be achieved. The important matter under consideration here must be the rights of religious minorities, which must be secured in various ways, depending on the models mentioned above. 3. Equal access to the rights Besides the general principles of non-discrimination, the equal access to rights is a very important part of the rights of men belonging to various minority groups. As the Russian Constitution point, The State shall guarantee the equality of rights and freedoms of man and citizen, regardless of sex, race, nationality, language, origin, property and official status, place of residence, religion, convictions, membership of public associations, and also of other circumstances. Man and woman shall enjoy equal rights and freedoms and have equal possibilities to exercise them. (Ch.2, Apt. 19) There is the same problem with the principles of equality, mainly, the "trap" of left project, as it happened in the Soviet Union. In fact, very often the leftists as well as populist politicians may propose to overcome existing disproportion between various groups through the special investments of a concrete group to achieve the social equality. To put this in other way, to achieve the real justice, from their point of view, only elimination of any disproportion has to be done. The critics might argue, though, that such approach to the social policy immediately leads to serious violations of equal opportunity principles, because neither negative, nor positive discrimination (affirmative action, as it is referred to it the United States) can follow the principles of real justice, replacing it by the principles of social parity, as it was done in the Soviet Union. At the same time, another trap can appear in this process. The conservative political elites of various cultural groups can use the flag of equality to get "ethnic revenge", just to replace one injustice, which already had happened with the community they symbolically represent, by another one. The populist politics during the last decades by Robert Mugabe in Zimbabwe where the discrimination of black population in apartheid time seems to be changed by the discrimination of white farmers under the present-day regime, might be a good example. Thus, the general formula of realization of the 'equal rights' principles can be achieved in Rule-of- Law state only through the equal access to the rights, without addressing, on the one hand, to the ideas of social parity, and, on the other, to the ideas of ethnic or religious revenge. 48 Minority Rights Protection in Federal System

wd{lg/k]iftfsf] l;4fgt ljleggf tl/sfn] k j4{g ug{ ;lsg5 To;dWo] Ps gful/s wd{ k4ltú klg xf] -h:tf] cd]l/sfdf_, ;dfg k ltlglwtj k4lt -h:tf] hd{gl_, / :jtgq wd{ú -h:tf] k mfg;_. jf:tadf, o;dwo] s'g k4lt ckgfpg] egg] ljifo d'n'ssf] df}h'bf kl/l:yltdf e/k5{, /fhgllts lj/f;t / wfld{s cnk;+vosx?alr ;Demf}tf ug{;lsg] ;Defjgfsf cfwf/df o;sf] to ul/g'k5{. wfld{s cnk;+vosx?sf] clwsf/ xgg gxf];\ egg] kifdf ;jf{lws ;ts{tfsf] vffrf] kb{5, o;sf] ;'/Iffdf cffr cfpg' x'fb}g. oxff plnnlvt k4ltsf] k of]u cnk;+vossf] ;'/Iffd} s]lgb t x'g'k5{. #= clwsf/df ;dfg kx" r ckifkftsf] cfdl;4fgtsf cfwf/df egg] xf] eg] ljlegg gfdsf cnk;+vos ;d'bfosf JolQmn] clwsf/df ;dfg kx'fr kfpg' egg] a'e\mg'kb{5. h:tf], /l;ofnl ;+ljwfgn] lglb{i6 ub{5 M /fhon] JolQm tyf gful/ssf] ln+u, j0f{, klxrfg, efiff, ptklq, ;DklQ tyf kblo x}l;ot jf o:t} cgo ljifsf cfwf/df kifkft gug]{ ;'lglzrttf ug'{k5{. dlxnf tyf k'?ifn] ;dfg clwsf/ tyf :jtgqtf / ;dfg ;Defjgfsf] xsbf/ agg / ceof; ug{ kfpg'k5{. -v08 @, wf/f!(_ ;dfgtfsf] l;4fgtdf klg oxl ;d:of b]lvg5. jfdkgyl kl/of]hgfsf] vf]/ú ;f]leot ;+3sf] pbfx/0f xf]. jf:tjdf jfdkgyl tyf hglk o /fhgllt1n] ;fdflhs ;dfgtf k fkt ug{sf nflu 7f]; ;d"xsf] ljz]if nufgl u/]/ ljlegg ;d'bfodf /x]sf] c;dfg'kflts ljt/0fsf] cj:yff x6fpg ;lsg] k :tfj ub}{ cfpsf 5g\. o; ljifonfo{ csf]{ lsl;dn] a'e\mbf, pglx?sf ljrf/df jf:tljs Gofo k flktsf nflu c;dfg'kflts ljt/0fdf ;'wf/ Nofpg' cfjzos 5. o; ;DaGwdf ;dlifsx?sf] wf/0ff x'g;s5 ha gsf/ftds jf ;sf/ftds lje]bsf gfdn] s;}nfo{ cf/if0f lbog5 / s;}nfo{ ;f] clwsf/af6 jl~rt /flvg5 eg] s;/l ;dfgtf eof], ;fdflhs glltn] g} ;dfg cj;/sf] l;4fgt pnn+3g u of]. ljutdf ;sf/ftds lje]bsf gfddf cd]l/sfn] cj;/af6 jl~rt ;d'bfonfo{ cf/if0f k bfg ug]{ gllt ln+bf ;f]leot ;+3df oxl ts{ ul/of] / To;sf 7fpFdf jf:tljs Gofosf] l;4fgt cg'z/0f ul/of]. o; k lqmofdf csf]{ cj/f]w klg b]lvof]. ljlegg ;f+:s[lts ;d"xsf k'/ftg tyf ;De fgt /fhgllt1x?n] hftlo abnfú sf nflu klg ;dfgtfsf] em08f p7fpg] u/]sf] kfoof] Psdfly epsf] c;dfg Jojxf/ x6fpg csf]{dfly c;dfg Jojxf/ x'g] u/]sf] b]lvof]. lhdafaj]df /f]a6{ d'ufa]n] upsf] bzsdf hglk o /fhgllt ub}{ sfnf hfltdfly epsf] lje]b x6fpg pglnfo{ cf/if0f k bfg u/], kl/0ffd:j?k uf]/f s[ifsx? cfh kifkftsf] lzsf/ eo/x]sf 5g\. ;sf/ftds lje]bn] kf/]sf] c;/nfo{ a'emfpg] of] dfld{s pbfx/0f xf]. ;dfg clwsf/ú sf] l;4fgt cftd;ft\ ug]{ ;fdfgo ;"q clwsf/df ;a}sf] ;dfg kx'frsf nflu sfg'gl af6f] cjndag ug'{ g} xf]. ;fdflhs ;dfgtf, hghflt jf wfld{s abnfsf] efjgfn] ;dfgtfsf] s'/f ul/of] eg] Tof] k To'Tkfbs x'gk'u5. ;+3Lo ;+/rgfdf cnk;+vos clwsf/sf] ;+/If0f $*

4. Political representation One of the most important problems in promoting equal rights is the problem of political representation. One of the possible forms to defend minority rights is the federal system where subjects can be represented by various ethnic groups. In fact, the Russian Federation is partly an example of such kind of system. Constitution defines Russia as a federation. Although among the subjects of the Russian Federation there is a number of so called "ethnic republics", the Constitution itself does not provide any special notion of ethnic basis for the subjects of the federation, and according to the law all subjects of the Russian Federation are equal to each other. The fact is, though, that all subjects of the Russian Federation, entitled as "Republic" of various ethnic denominations (as Tatarstan, Bashkortostan, and others) are opposed to the subjects which have no specific symbolical connection with any ethnic group and are based on the geographical basis (as Altay region, Omsk region, and so on). Thus, de facto about one third of subjects of the Russian Federation symbolically represent various ethnic groups. At the same time, Constitution provides for the freedom of self-identification, including the freedom of self-determination of national identity: Everyone shall have the right to determine and indicate his nationality. No one may be forced to determine and indicate his or her nationality. (Ch.2, Apt. 26) The federal system also determines the jurisdiction of the Russian Federation and its subjects, in particular, in connection with national minority question. The Federal Center is responsible for regulation and protection of the rights of national minorities (Ch.3, Apt 71. 3) At the same time, the Constitution provides the different terms for a) national minorities, which is certainly a broad definition, and b) indigenous small peoples, which are strongly described as specific groups, mainly inhabiting the Far North and Far East of the Russian Federation: The Russian Federation shall guarantee the rights of the indigenous small peoples according to the universally recognized principles and norms of international law and international treaties and agreements of the Russian Federation (Ch. 3, Apt. 69) The only special rights for minorities protected by the Russian Constitution are the language rights: Everyone shall have the right to use his or her native language, to a free choice of the language of communication, upbringing, education and creative work (Ch. 2, Apt. 26. 2) 49 Minority Rights Protection in Federal System

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One of the serious problems is the political representation of various minority groups on the federal and regional level. In Russia, any parties based on the religious and ethnic basis are prohibited according to the law, as the Constitution determines Russia as a state of all people, and the Russian citizenship is therefore based on the idea of civil nation. That's why the determination of ethnic identity is the free choice of all citizens of the Russian Federation. The question still remains, how to guarantee the political representation of various minorities in all branches of political power. The main problem here is to establish the special bodies for representing groups rights, as it was in the Soviet Union (Council of Nations in the Soviet parliament). From the perspective of multinational society, it is important rather to blur the borders between the peoples than to strengthen the idea of collective interests and sentiments, which undermines the idea of civil citizenship. The problem of political representation of various minorities is strongly connected with the idea that only a member of a specific ethnic group may adequately represent the needs of various minority groups. From this perspective, the quotas for minority representatives as one of the main tools of promoting political representation for minorities are really a wrong way striking the principles of common citizenship. Good example here is again the Soviet Union, where there were special quotas for women in every level of political power, including top management of government, but the real situation with discrimination of women was really bad. Instead of that, various political parties and organizations should be encouraged to include the agenda of minority rights into their political programs and goals, various human rights organizations and NGOs must bring this agenda to political debates, and the Constitution must protect people against discrimination, provide equal access to rights and political representation, based on the idea of civil citizenship instead of group rights. To create sustainable, liberal state of Rule-of-Law, with strong civil society, protection of minority rights, from my point of view, must be based on the idea of individual character of human rights, elimination of ethnic divisions in legal discourse, and fighting with any kind of discrimination, inequality and religious, ethnic and all possible forms of hate. 50 Minority Rights Protection in Federal System

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Annex 1: Minority Rights Protection in Nepal's Federal System Kathmandu Declaration 2012 Recalling the concerns minority population expressed during the nationwide consultation on State Restructuring and Minority Rights held by SUPPORT Nepal in January 2012, Remembering the Charters of the United Nations and Universal Declaration of Human Rights, Remembering the Interim Constitution of Nepal 2007 and the agreements that Government of Nepal has signed with various groups, Committing to the International Covenant on Civil and Political Rights (ICCPR), 1966, International Covenant on Economic, Social and Cultural Rights (ICESCR), 1966, Convention on the Elimination of All Forms of Discrimination Against Women (CEDAW), 1979, Declaration on the Rights of Persons Belonging to National or Ethnic, Religious and Linguistic Minorities, 1992, Declaration on the Rights of Disabled Persons, 1975, Declaration on the Rights of Indigenous Peoples (DRIP), 2007, ILO Convention 169, International Convention on the Elimination of All Forms of Racial Discrimination (ICERD), 1965, Declaration on Race and Racial Prejudice, 1978, The Kathmandu Declaration is issued in the presence of 65 representatives from Madheshi, OBC, Muslim, Indigenous Nationalities, women, Dalit, persons with disability, sexual, linguistic and religious minorities and the Chair of the Minority & Marginalized Communities Rights Protection Committee, members of the political parties, civil society and journalists, at Constitutional Roundtable on Protecting Minority Rights in Federal System, held on 25-26 March, 2012 at Budhanilkantha in Kathmandu, Nepal, 1. Definition of minorities should be defined in the new Constitution. Conditions and basis of defining minorities at the federal, provincial and local level should also be clearly defined. 2. Women's issues are different. Women's representation should be ensured identifying these differences based on caste, geography, education, religion and social, economic, cultural and political sectors. 3. Women's proportional representation at all organs of federal system should be ensured. 4. Accepting the differences within women, laws, policies and programs aimed at women should be formulated in their direct participation. 5. The Constitution should guarantee the identity, respect and rights of persons belonging to minorities. Identity and respect for persons belonging to minorities should be reflected while naming, demarking and numbering the federal structures. Similarly, minorities within minorities, e.g. women, Dalits, Muslim, persons with disability, LGBTI and others, should be ensured with compensational and other measures of affirmative action. However, such measures of the affirmative action should be reviewed on periodic basis. 6. Persons belonging to minorities should be ensured with equality and involvement in power sharing as well. Mechanisms such as commissions, electoral system and bi-cameral parliament should ensure the representation of all caste/ethnic groups in Nepal.

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7. Equality should not undermine the distinctive characteristics of persons belonging to minorities. 8. Constitutional provisions and interpretations should not be discriminatory based on differences of the caste/ethnic groups, gender, race, geography, language, religion, class, physical status of minorities. 9. Mechanisms such as minority commission should be constitutional and should have provisioned to have authority to protect and promote minority rights. 10. All languages, cultures including religion should be given equal importance and respect. Not any particular dominates others. 11. Participation of persons belonging to minorities in formulating laws and policies should be made compulsory if it affects their lives. 12. Inclusion of persons belonging to minorities at all levels of federal system should be ensured. 13. The constitution should guarantee the minimum equality to all caste and ethnic groups in Nepal. 14. Any illegal and non-constitutional action against persons belonging to minorities should be prohibited and such offence should be taken as serious crime. Those held accountable for such action should be deprived of public opportunities.

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Annex 2: Roundtable Schedule Time Sunday, March 25th, 2012 Monday, March 26th, 2012 08:30 09:30 Tea, Coffee & Refreshments Inauguration Chair: Ganga Sah, President, SUPPORT Chief Guest: Dan Bahadur Chaudhary, Minister for Women, Children and Social Welfare, Government of Nepal Location: Banyan Hall Tea, Coffee & Refreshments Presentation and Q&A Title: Protection of Minority Rights: European Experience Presentation: Agit Mirzoev & Alexandra Delemenchuk Location: Banyan Hall 10:30 Documentary State Restructuring for All Location: Banyan Hall 11:00 Tea, Coffee & Refreshments Tea, Coffee & Refreshments 11:30 Paper presentation and Q&A Title: Ensuring the Rights of Minority Women through Affirmative Actions in Nepal. Presentation: Mohna Ansari Location: Banyan Hall Paper presentation and Q&A Title: Minority Rights in Russian Law: the mechanisms and its critique Presentation: Professor Dmitry Dubrovsky Location: Banyan Hall 12:30 Lunch Break Lunch Break Paper presentation and Q&A Paper presentation and Q&A 14:00 Title: Changing Contexts of Dalits in Nepal Title: Ethnic Assertion for Presentation: Dr. Madan Pariyar Political Space in Federal Nepal Location: Banyan Hall Presentation: Professor Krishna Hathhechhu Location: Banyan Hall 15:00 Presentation and Q&A Title: Minority Rights in Nepal: Linguistic Perspective Presentation: Dr. Ram Dayal Rakesh Location: Banyan Hall Presentation and Q&A Title: Challenges of Madheshi, Muslim and OBC Inclusion and Rights in Nepal Presentation: Dr. A. R. Mikrani Location: Banyan Hall 16:00 Tea, Coffee & Refreshments Tea, Coffee & Refreshments 16:30 Paper presentation and Q&A Title: Power Sharing in Sri Lanka: Experiences and Perspectives Presentation: Dr. Jayampathy Wickramaratne Location: Banyan Hall Presentation and Q&A Title: Proposal of Minority Rights Protection in New Constitution in Nepal Presentation: Lalbabu Pandit Location: Banyan Hall 17:00 Closing Declaration & Recommendations on Protecting Minority Rights for Nepal's Federal System, Location: Banyan Hall 17:30 19:30 Summary of Day 1 Group Dinner & Nepali Cultural program

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Annex 3: Summmarized Report of the Roundtable 1. Summarized report of the Roundtable With an aim to provide an interactive space for policy makers, leaders, researchers and practitioners working in the field of protecting and promoting minority rights in federal countries to share experiences and successful approaches of minority rights protection in federalism, SUPPORT Nepal organized a Constitutional Roundtable on the Protection of Minority Rights in Federal System in Kathmandu, Nepal on 25-26 March, 2012. 65 representatives from Madheshi, OBC, Muslim, Indigenous Nationalities, women, Dalit, persons with disability, sexual, linguistic and religious minorities and the Chair of the Minority & Marginalized Communities Rights Protection Committee, members of the political parties, civil society and journalists participated in the roundtable. Supported by Minority Rights Group International (MRG), UK, the European Commission and the Swiss Federal Department of Foreign Affairs (FDFA), the roundtable provided an interactive forum to explore ways for more effective and sustainable safeguard mechanisms so that minorities will be neither marginalized at the center nor at the level of federal units. The roundtable also provided exposure to the challenges and mitigation approaches related to minority rights during transitional periods, providing a bigger picture of protection mechanisms and instruments of incorporating wider minority groups concern and rights under the federalization process in Nepal. The roundtable was inaugurated by the Minister for Social Welfare, Women and Children and provided in depth discussion over 9 papers presented during the roundtable. 3 international and 6 national experts/practitioners presented their papers/presentations on different topics of minority rights protection in federal systems. At the end, the roundtable was concluded with 14-point Kathmandu Declaration which was handed over to the Speaker of the Constituent Assembly on 27th March, 2012. He expressed his gratitude to SUPPORT Nepal and urged to continue the effort of pressurizing the stakeholders though peaceful means. The Declaration focused on identity, protection and representation of person belonging to minority groups in Nepal. It also emphasized that minorities not only need equality but also a fair share of power sharing. 2. Objective of the roundtable: The overall objective of the roundtable was to provide an interactive space for policy makers, leaders, researchers and practitioners working in the field of protecting and promoting minority rights in federal countries to share experiences and successful approaches of minority rights protection in federalism. The roundtable focused on three major elements: I. constitutional provisions for protecting minority groups, II. III. secondary legislation, laws and policies of protecting minority groups, and appropriate approaches to benefitting all in federal systems with a focus on dispersed and smaller groups. 3. Proceedings of the Roundtable A call for papers was published during the early weeks of Feb, 2012 with focus on following five suggested topics:

Minority Rights in Russian Law: Principles of Minority Rights Protection by Professor Dmitri Dubrovsky; II. Changing Context of Dalits in Nepal by Dr. Madan Pariyar; Ansari; Mohna by Action Affirmative though Women Minority of Rights Ensuring I. was going to celebrate having two decades of UN Declaration of Persons Belonging to National or Ethnic, and protection of minorities. He recalled that Nepal had just begun to talk about minorities whereas the world international experiences of how this constitution should guarantee the proper identification, respect, participation During his opening speech, Ganga Prasad Sah, Chair of SUPPORT Nepal, stressed that Nepal should learn from the work raising concerns and issues of minorities in the constitution making process. He reminded tha indifference of the CA for not organizing enough events to bring minorities in the process of Pandit, Chair of the Minority and Marginalized Communities Rights Protection Committee under the CA expressed his sincere gratitude to SUPPORT Nepal for would be a great resource to understand the situation of minorities in the country. Another speaker, Lalbabu CA Member, Yadubansh Jha, appreciated the work of SUPPORT and expected that the research it had done He expressed hope that the roundtable would bring suitable framework as needed to protect the rights of minorities. The roundtable was inaugurated by the Minister for Social Welfare, Women and Children, Dan Bahadur Chaudhary. Among the submitted papers, 5 final papers and 4 presentations were selected for the roundtable. Out of 9 presentations, 3 were international and 6 were national presenters. marginalization of minorities, taking into account the inequality within minorities; and 5. Strategies for winning support from authorities and dominant communities at all state levels respect to minorities; 4. Affirmative action measures to address the situation of economic, social, cultural and political levels of state (provinces, local and autonomous areas); 3. Distribution of powers between federal, provincial, local levels and autonomous areas in of these mechanisms; 2. Balancing the interests of new and old minorities and majorities in particular at various 1. Mechanisms, e.g. electoral system, bi-cameral parliament, commissions, for participation of minority communities in a federal country and issues around the practical implementation V. Ethnic Assertion for Political Space in Federal Nepal by Professor Krishana Hachhethu. IV. III. Power Sharing in Sri Lanka: Experiences and Perspectives by Dr. J. Wickramaratne; Five papers presented during the roundtable were: Religious and Linguistic Minorities (UNDM). constitution writing. for participation and minority rights measures.

Special provisions were needed to empower women with illiteracy, poverty and discrimination. Otherwise, educated and women from dominant groups would keep enjoying all benefits Need of practical ways to increase women participation in the state restructuring process. Women friendly budgeting should be provisioned and be practiced. Although we had laws and policies in favor of women, implementations of those were never given a priority. Need of more clarity of different sections of minority women such as Dalits, Madheshi, Muslim etc. Participants had several comments on her paper and some of the key were as follows; Nepal) described the status of women, women in political movements, womencentric provisions, protection and promotion of women rights and measures Through her paper on Ensuring Rights of Minority Women though Positive Discrimination, Mohna Ansari (Member of the National Women Commission, Presentation 1: Ensuring Rights the Minority Women through Positive Discrimination - Mohna Ansari Nepal; i) Naming and Delineation of Federal Boundaries, ii) List of Powers, iii) Interrelationship or Fiscal Federalism, and iv) Protection of Minority Rights. The documentary covered common understanding and recommendations of the minority groups on four key elements of state restructuring process in Nepal organized during early January, 2012. The workshops participated by more than 223 representatives of minority CSOs, local chamber of commerce, A documentary was shown at the beginning of the roundtable. State Restructuring for All was a video documentary made on the five regional workshops SUPPORT Action, Dr. Madan Pariyar presented a paper on Changing Context of Dalits in Nepal, and Dr. J. Wickramaratne presented his paper on Power Sharing in Sri Lanka: Experiences and Perspectives. The first day, 25th March, 2012, in-depth discussion was made on three papers presented in day one. Mohna Ansari presented a paper on Ensuring Rights of Minority Women though Affirmative I. Protection of Minority Rights: European Experiences by Agit Mirzoev and Alexandra Delemenchuk; allocated for women. of affirmative action. professionals, political parties and media of 23 Terai and adjoining hill districts. On 25th March, 2012, Janak Kumari Chalise, CA Member, chaired the session of paper presentations. FIRST DAY (March 25th, 2012) IV. Proposals of Minority Rights Protection in New Constitution by Lal Babu Pandit. III. Development of Madheshi, Muslim and OBC Communities by Dr. A.R. Mikrani; and II. Minority Rights in Nepal: Linguistic Perspective by Dr. Ram Dayal Rakesh; Four presentations made during the roundtable were:

Ansari responded that National Women Commission (NWC) was working to endorse and implement existing laws and policies. NWC prepared a policy paper on gender issue in federalism. NWC also Exclusion issue within women was being noticed. NWC also monitored cases of violence again women but without enough jurisdiction could not punish the perpetrators. Minority women should get priority to benefit from provisions but had no such policies to help materialize this. Presentation 2: Changing Context of Dalits in Nepal- Dr. Madan Pariyar Dr. Madan Pariyar (Chair of then State Restructuring Recommendation High level Commission, Nepal) presented his paper on Changing Context of Dalits in Nepal. Dr. Pariyar described the historical background and understanding of Dalit, historical context of caste based discrimination, Dalit in current changing context, mechanisms for non territorial Dalit province, and special rights among others. Participants had some feedbacks and comments on the paper and some of the key comments were as follows: The State Restructuring Recommendation High level Commission proposed non territorial province for Dalits, what would be the economic feasibility of such province? Could Dalits participation be ensured in overall development? Considering the practical side of national laws and policies, could non territorial province s proposal for Dalits help Dalits enjoy equal status with non-dalits or create wider gap between them? Difference between the rights that could be availed though territorial and non territorial provinces? Where would Dalits rights be ensured; in the principle of equality among equal or rights of equality? What if territorial province would reject the law/policies formulated/endorsed by non territorial province? What would be the remedy? If a person whose traditional occupation was washing clothes could be categorized as Dalits, why not the same apply for Muslim? Dr. Pariyar s key responses were as follows: Since Dalits did not have their own territory, there was not any question of generating resources. The federal government should province budget for non territorial Dalit province. Dalits needed to have special rights otherwise they always remain Dalits. Difference between Hill and Madheshi Dalits needed to be understood and responded accordingly. Dalits were needed with rights to equality and also equality among equal. A provision should be made to accept the laws/policies formulated/endorsed by non territorial province. Presentation 3: Power Sharing in Sri Lanka: Experiences and Perspectives - Dr. J. Wickramaratne Presenting his paper, Power Sharing in Sri Lanka: Experiences and Perspectives, Dr. J. Wickramaratne shed light on ethnic demography in Sri Lanka, constitutional history, attempts of power sharing, East-North merger demand by Tamils, referendum, forms of government, safeguards for minority protection, issues of identity, provisions for language and so on. Dr. Wickramaratne requested to be more curious about equality which didn t naturally mean power sharing.

Participants had some feedbacks and comments on the paper and some of the key comments were as follows: Ethnic interest could be represented only if they have their ethnic representatives in political bodies. How did this fit in Sri Lankan context? Constitutional provisions of addressing the concern of minorities in Sri Lanka. What was the provision if the federal/center would dissolve provincial government? What were the rights of women provisioned in Sri Lankan constitution? Dr. Wikramaratne responded on the comments as follows: The Sinhalese based parties were not nominating enough minorities including women. We have not been nominating enough women. Nepal had huge diversity in terms of caste/ethnic, religion and languages. Nepal must find approaches that ensure the rights of minorities in federalism. The principal of federalism was good for ethnically diverse society like Nepal. It was a challenge but minorities get more in federalism than in unitary system. But again Nepali people should decide it. The first day was wrapped up with sharing the key points of presentation and comment. Later in the evening, the participants enjoyed Nepali Cultural Dance performed by a local culture group. SECOND DAY (March 26th, 2012) On 26th March, 2012, Yadubansh Jha, CA Member, chaired the session of paper presentations. In depth discussion was made on five papers presented in day one. Dr. Ram Dayal Rakesh presented on Minority Rights in Nepal: Linguistic Perspective, Agit Mirzoev and Alexandra Delemenchuk presented a paper on Protection of Minority Rights: European Experience. Professor Dmitri Dubrovsky presented a paper on Minority in Russian Constitution: Principles of Minority Rights Protection, Professor Krishana Hachhethu presented a paper on Ethnic Assertion for Political Space in Federal Nepal, Dr. A.R. Mikrani presented on Development of Madheshi, Muslim and OBC Communities, and Lalbabu Pandit presented on Proposals of Minority Rights Protection in New Constitution. Presentation 4: Minority Rights in Nepal: Linguistic Perspective- Dr. Ram Dayal Rakesh 1 As the first presentation of second day, Dr. Ram Dayal Rakesh presented, Minority Rights in Nepal: Linguistic Perspective. Dr. Rakesh described definition of minorities and Nepalese context, definition of language, language and culture, national, regional, local and contact languages, language and media and so on. Responding to the comments, he emphasized on ensuring Braille script in national and regional languages in new constitution. 1 Former Member of National Human Rights Commission, Nepal. Member of PEN International, cultural and linguistic expert. Published several books and literatures on culture, language and contemporary issues.

Presentation 5: Protection of Minority Rights: European Experiences - Agit Mirzoev 2 and Alexandra Delemenchuk 3 Agit Mirzoev and Alexandra Delemenchuk presented on Protection of Minority Rights: European Experiences. They shared the European experiences such as ethnic diversity in Europe, pillars of minority rights, positive exercises, legal and institutional frameworks, equal and different identity of persons belonging to minorities, procedures and conventions on protecting the persons belonging to minorities. Participants had some comments on their presentation such as how European countries tackle problem of ethnic conflicts, situation of minorities during the break up of USSR, and criteria European countries adopted to define and enlist minorities. The presenters responded to the queries that there were many claims from different minority communities about their rights and problems in their protection. Also the discrimination and protection from hate crimes. In some parts of Europe, we had old minorities and in some, we re having new communities of minorities such as the migrants from Asia and Africa. We had certain definition about defining minorities. Presentation 6: Minority in Russian Constitution: Principles of Minority Rights Protection - Professor Dmitri Dubrovsky Professor Dmitry Dubrovsky presented a paper on Minority in Russian Constitution: Principles of Minority. He explained minority in Russian law, ethnic federalism vs non-territorial cultural federalism and national cultural autonomy, management of national policy, constitutional provisions of cultural diversity, linguistic rights, minority protection against humiliation and strife, symbolic characteristics of political representation in the law, individual vs. collective rights and so on. Participants raised some comments on Professor Dubrovsky s presentation as follows: The suspicion and tensions between minorities and dominant groups was increasing in Nepal. How would Russian experience relate this to respond properly? What was the role of indigenous and minorities in the national level decision making process? Any relevant experience from Russia? 2 3 human rights lawyer; Executive Director of the think-tank "Analytical Center for Interethnic Cooperation and Consultations" (Georgia) focusing on the topics of the minority rights protection and diversity management in the public domain in the South Caucasus; ethnic minority community activist;ê member of the Council of National Minorities of Georgia; expert of the MRG GAP program for South Caucasus. human rights lawyer; Policy Advisor of the NGO "Center for Civil Liberties" (Ukraine) focusing on protection of fundamental freedoms, combating discrimination on any ground and promotion of the international solidarity of the human rights defenders, in particular representing interests of marginalized communities; representative of the Helsinki Citizens Assembly International for Former Soviet Union area (FSU); expert of the MRG GAP program for South Caucasus.

Professor Dubrovsky responded that there was need of identifying whether the issues were raised by the people or their leaders. Russian experience showed that concentration was on festivals, languages and cultures and not directly in the politics. Our politics not necessarily touched the real discrimination of the Russian streets. Council of Federation did not really represent the issues of minorities. Presentation 7: Ethnic Assertion for Political Space in Federal Nepal - Professor Krishana Hachhethu Professor Krishana Hachhethu presented a paper on Ethnic Assertion for Political Space in Federal Nepal. Professor Hachhethu explained reasons for increasing importance of ethnicity, limitation of ethnic contents, perspective of Madheshi and indigenous nationalities, proposals of State Restructuring Committee and Commission. He emphasized that current proposals of federal structures was nearer to the characteristics and principles of non-ethnic federalism. Some of the key comments made on Professor Hachhethu were as follows: What was the difference between his definitions of social group with minority groups? Had our proposals of ethnic provinces based on scientific approach or just motivated by movements? What would be the situation or rights of an ethnic group which form smaller in number in other ethnic province? Professor said that there were three identity of Madhesh; geographic, locality or by birth and cultural. In federal system, minorities like Dalits and Muslims could be categorized under deputy-heads as per their population ratio in the provinces. King Mahendra imposed Pahadi (hill) culture over Madheshi. In multi-party democracy, election constituencies were delineated in a way that representation of Madhesh in lower house could be minimized. Future federal system should be inclusive of all. Country could not be divided but the districts could. We talked about collective rights but that should not be at the cost individual rights. Presentation 8: Development of Madheshi, Muslim and OBC Communities - Dr. A.R. Mikrani 4 Dr. A. R. Mikrani made a presentation on Development of Madheshi, Muslim and OBC Communities. Dr. Mikrani emphasized that the development of abovementioned communities consisted the protection of Nepalese interests. Participants inquired about the role the National Planning Commission (NPC) in Nepal played to make national planning process inclusive. Dr. Mikrani shared that although slow, but the NPC was opening its window to the issues of indigenous nationalities, Dalits and women. He also emphasized the need of practiding existing policies on sociall inclusive planning process from center to local level. 4 A Member of National Planning Commission, Nepal. Had worked with several national and international agencies and had published dozens of articles on economy and development.

Presentation 9: Proposals of Minority Rights Protection in New Constitution - Lalbabu Pandit 5 Finally, Lalbabu Pandit made a presentation on Proposals of Minority Rights Protection in New Constitution. Pandit shed lights on the proposals minority rights by the committees under the CA including the Minority & Marginalized Communities Rights Protection Committee. Pandit described the proposals on definition of minority, language, culture, religion, citizenship, provisions against discrimination, economic and social development and other relevant subjects. Participants asked if the Committee understand the dynamics of minorities (such as minority women, LGBTI) in Nepal and had commitment to incorporate their agenda in the new constitution. Pandit stressed that his committee was serious about minority agenda and doing their best to incorporate the genuine demands. He also asked the minority civil society to cooperate the committee in understanding the isolated part of minority communities. The two-day roundtable ended after declaring a 14-point Kathmandu Declaration on Protection of Minority Rights in Nepal s Federal System. Closing the roundtable, Ganga Prasad Sah, Chair of SUPPORT Nepal, thanked the paper writers, presentators and the participants for their valuable contribution in making the program a success. He also thanked the donors; MRG, EC and the Swiss Embassy in Nepal for their funding and support. THIRD DAY (March 27th, 2012) 4. Closing of the Roundtable and Common Agreement On 27th March 2012, A team of participants from the roundtable handed over the Declaration to the Chairperson the Constituent Assembly, Subhash Chandra Nembang. Chair Nembang thanked SUPPORT that such roundtable would support in participatory constitution writing and protection of minority rights. Such event would also help the ongoing debate on state restructuring in the Constituent Assembly. He informed that the Declaration would be handed over to the Constitutional Committee. Supported by the Minority Rights Group International, the European Commission and the Federal Department of Foreign Affirs, Switzerland, the roundtable provided opportunity to share national and international experiences on protecting the rights of the persons belonging to minorities. Participants had a common understanding that minority rights protection should be guaranteed by the constitution as it was the supreme law of the country. 5 Chair of Minorities & Marginalized Communities Rights Protection Committee (MMCRPC) under the Constituent Assembly (CA) in Nepal.

Annex 4: Roundtable Participants Minority Rights Protection in Federal System Constitutional Roundtable 25-26 March, 2012, Kathmandu, Nepal SN Name Organization Cell number E-mail 1 Agit Mirzoev ACICC, Georgia Acicc.info@gmail.com 2 Alexandra Delemenchuk Center for Civil Liberties, Ukraine 3 Anim Dahal 9841162164 animdahal@hotmail.com 4 Arbind Kumar Patel ASI (PSU) 9844156600 arbind.ar@yahoo.com 5 Balika Chaudhary SFCG 9741093627 bchaudhary@sfcg.org 6 Bijay Luitel Kavya Media 9851010005 kabyamedia@gmail.com 7 Birendra Prasad Yadav Advocate 9845035124 Birendra532025@yahoo.com 8 Budhi Karki UNDP 9851035390 Budhi.karki@undp.org 9 Damber Limbu Federal Limbuwan 9841647929 State Council 10 Devika Timilsina IHRICON 9857078449 timilsinadevika@gmail.com 11 Dilip Kafle SSD, Biratnagar 9842024534 dilipkafle@gmail.com 12 Dmitri Dubrovsky St. Petersburg 79213453943 dubr@smolny.org State University, Russia 13 Dr. A.R. Mikrani National Planning 9844173233 armikrani@npcnepal.gov.np Commission 14 Dr. Jayampathy ICS, Sri Lanka Jwikramaratne@yahoo.com Wikramaratne 15 Dr. Ram Dayal Rakesh PEN 9851092071 rdrakesh@wlink.com.np 16 Gajanand Patel Madheshi Rights Activist 9857023531 Gajananel_palel33@yahoo.com 17 Ganga Prasad Sah SUPPORT Nepal ganga@supportnepal.org 18 G.B. Chitan U-CPN Maoist 9748505501 19 Hansha Sanjgal GSI 9841015225 hanrsan@gmail.com 20 Ines Budarick KURVE Wustrow 9849886108 nepalcoodinator@kurvewustrow.org 21 Janak Chalise CPN-UML 9841851500 janakchalise@gmail.com 22 Jiwan Subedi European Union, Nepal 9801000175 Jiwan.subedi@eeas.europ.eu 23 Kalpana Thapa (Magar) Seto Gurash Child 9847114814 thpkalpana@gmail.com Development service, Rupendehi 24 Kapil Kafle Nepal Samacharpatra 9851072353 Patrakarita.khoj@gmail.com 25 Karuna Paudel Equal Access Nepal 9851123274 kpaudel@equalaccess.org 26 Kheetanat Wannabowan 66841860904 Kheetant.wannabowon@mrgmail.org MRG 27 Kishor Sapkota Journalist 9803992878 dearkishor@hotmail.com

28 Krishna Hachhethu Tribhuvan University 9851007316 krihac@gmail.com 29 Lal Babu Pandit CA Member 9841564539 lalbabupandit22@yahoo.com 30 Madan Pariyar Dalit Intellectual 9841580944 31 Mahamadin Ali Nepal Muslim Forum 9841248033 dinmahamadi@hotmail.com 32 Manorjan Baidha Parichaya Samaj 9841705039 33 Manoj Shrivastava Kapince Nepal 9847040093 manojlaimail@gmail.com 34 Martin Stuerzinger Swiss Embassy 985 107 55 78 martin.stuerzinger@eda.admin.ch 35 Md. Asgar Ali Nepal Muslim Samaj 9844025513 36 Menuka Bhattachan CDS 9849231221 menukamiski@hotmail.com 37 Mohna Ansari National Women 9851133781 mansari@nwc.gov.np Commission, Nepal 38 Najbul Khan MASWES 9852831084 39 Neil Clarke MRG neilclarke@mrgmail.org 40 Nicole Girard MRG Nicole.girard@mrgmail.org 41 Nimesh Karn Radio Madhesh 98510114073 aasthajounalist@gmail.com 42 Pankaj Kumar Karn Advocate 9851060135 Pankajlal.karn@gmail.com 43 Rakesh Gupta Roshan MPRF Republican 9852831654 rakeshlhn@gmail.com 44 Rakesh Karna SUPPORT Nepal 9851110946 rakesh@supportnepal.org 45 Rubi Khan Minority Community 9848429121 Rubikhn2009@gmail.com Protection Center 46 Roshana Khadka SUPPORT Nepal 9841573874 roshana@supportnepal.org 47 Ruhi Akhtar Muslim Ettehad Sangh 9845267542 48 Rup Sunar PDRC 9849268385 rupsunar@gmail.com 49 Rupesh Kumar Karn Janhit Sewa Samaj 9844047948 Janhit.pwssn@gmail.com Nepal 50 Sabir Ahamad Araj Bikash Nepal Parsa 9845035150 arajsabir@gmail.com 51 Sangita Thapa CDS 9858021415 Sangitathapa08@gmail.com 52 Sanjeev Sharma Madhesh Post Daily 9841288682 Sanjeev_ac@hotmail.com 53 Sant Kumar Verma FORCE NEPAL 9858023976 vermasant@hotmail.com 54 Saroj Karki MC(Socialist) 9741136275 55 Sheetal Jha Mithila State Struggle 9844020578 Committee 56 Shyam Adhikari COCAP 9851131089 shyam@cocap.org.np 57 Shyam Kumari Sah Mukti Nepal Siraha 9842824377 soneesah@gmail.com 58 Sudha Rimal CDS 9841782346 sudharimal@gmail.com 59 Sushil Kumar Karki Aawaj (Surkhet) 9848029567 Sus.skt10@yahoo.com 60 Suresh SK ESP/RDIF 9848724613 suresh@esp-nepal.org.np 61 Sushila Thing WIP, Sindhuli 9844045452 Sushila_thing@hotmail.com 62 Sunil Kumar Sah Samagra 9852530976 Sunil.right@gmail.com 63 Sunil Mallik MINAP 9854021419 Sunil.mallik@gmail.com 64 Tanka Panta Nepal Samacharpatra 9851036120 tanka.panta@gmail.com 65 Tej Narayan Chaudhary Tharu Rights Activist 9842036244 66 Tirthman Tamang Demographer 9851004480 67 Y.B Jha CA Member 9841983155 68 Zakir Hussain Save The Human Right 9849895591 Hac_zakir@yahoo.com

Annex 5: Glimpses of the Roundtable Roundtable Session Participants watching documentary, State Restructuring for All. Commenting on Paper Commenting on Paper Chat during tea break Chat during lunch Group photo Roundtable delegates with the Speaker, after handing over the Declaration