Delimitation in India Introduction

• The delimitation of Lok Sabha constituencies has become the latest flashpoint between the DMK government and the Centre with the Tamil Nadu CM calling the process a “sword hanging over southern states” and warning of its potential to undermine their political representation.

What is Delimitation? 

• Delimitation is the process of redrawing the boundaries of parliamentary and state assembly constituencies to reflect changes in population. 
• It is conducted to ensure fair political representation based on demographic shifts.
•  It also decides how many seats will be reserved for Scheduled Castes (SC) and Scheduled Tribes (ST). 

History of Delimitation

• Delimitation exercise was carried out three times in India: in 1951, 1961 and 1971. Over the years, as India’s population grew, so did the number of Lok Sabha seats:
  • 1951 Census: 494 seats | Population: 36.1 crore (7.3 lakh people per seat)
  • 1961 Census: 522 seats | Population: 43.9 crore (8.4 lakh represented per seat)
  • 1971 Census: 543 seats | Population: 54.8 crore (10.1 lakh per seat)

Constitutional Basis of Delimitation in India

• Delimitation is conducted as per the provisions of the Constitution of India. The process is governed by:
  • Article 82: Provides for the readjustment of parliamentary constituencies based on census data.
  • Article 170: Governs the delimitation of State Legislative Assembly constituencies.
• Delimitation Commission Act, 2002: This Act mandates the formation of a statutory Delimitation Commission, which is responsible for revising constituency boundaries.
• Historically, t he last delimitation happened in 1975, after which Indira Gandhi put a freeze until 2000. This was extended further to 2026. Once this freeze is lifted, the first census after 2026 will serve as the basis for a fresh delimitation exercise.

Why is Delimitation Important? 

• Preserving Federal Balance: The delimitation exercise seeks to balance representation among states, crucial for maintaining national unity and regional autonomy. The 42nd Amendment’s population freeze ensured that southern states, which successfully controlled their population growth, did not lose political influence, thereby protecting cooperative federalism.

• Enhancing Electoral Administration: An optimal voter-to-representative ratio allows for more efficient governance. Post-2002 delimitation, cities like Mumbai and Bengaluru witnessed better electoral administration due to improved constituency structuring.

• Adapting to Demographic Shifts: As populations grow and migrate, representation must evolve. Countries like the UK conduct periodic boundary reviews through the Boundary Commission, a model India can learn from to enhance electoral integrity.

• Ensuring Fair Political Representation: Delimitation helps in equitable seat distribution across Lok Sabha and State Assemblies. The 2002 Delimitation Commission improved the voter-to-MP ratio, ensuring a fair representation of both urban and rural constituencies.

• Strengthening Democracy: By preventing gerrymandering—the manipulation of electoral boundaries for political advantage—delimitation ensures fair elections. The Supreme Court in Kuldip Nayar v. Union of India (2006) underscored the significance of delimitation in upholding democratic fairness.

• Promoting Socio-Economic Equity: The delimitation process provides better representation for marginalized communities, including Scheduled Tribes. For instance, the J&K Delimitation Commission increased the number of seats in Jammu to rectify historical imbalances in representation.

Challenges of Delimitation in India

• Threats to Federalism: A fresh delimitation could shift political influence toward the northern states with higher population growth rates, reducing the representation of southern and northeastern states. This could intensify regional imbalances and create a North-South divide. The Sarkaria Commission (1983) cautioned against excessive centralization, emphasizing the need for a balance between federal and national interests. The 42nd Constitutional Amendment (1976) froze seat allocation based on the 1971 Census to protect states that successfully controlled population growth. This was later extended until 2026 to prevent states like Tamil Nadu and Karnataka from losing representation compared to high-growth states like Uttar Pradesh and Bihar. 

• Resistance from Political Parties: Delimitation can face pushback from political parties reluctant to lose electoral strongholds. The 2002 Delimitation Commission, led by Justice Kuldip Singh, encountered significant resistance from politicians fearing a shift in power dynamics. The Bharatiya Janata Party (BJP) and Congress both opposed certain recommendations of the 2002 exercise, fearing electoral disadvantages. Similar resistance has been seen in West Bengal and Tamil Nadu, where political leaders argued that new seat allocations would disrupt regional power balances. 

• • Population Growth vs. Development: Southern states argue that using population as the sole criterion for delimitation would unfairly penalize them for successful family planning. For example, Tamil Nadu has a fertility rate of 1.6, compared to Bihar’s 3.0. If representation is solely based on population, states that controlled birth rates through better governance, healthcare, and education may lose seats in Parliament. According to the NITI Aayog report (2021), Kerala’s investment in social development resulted in better human development indicators but could lead to reduced parliamentary representation if the population-based formula is applied.

• Economic Considerations: Southern states argue that revenue contribution and economic strength should also play a role in representation. According to the Reserve Bank of India’s 2022 report, Maharashtra (14.2% of national GDP), Tamil Nadu (9.6%), and Karnataka (8.2%) contribute significantly to India’s economy. However, Uttar Pradesh and Bihar, despite lower economic outputs, would gain more seats under a purely population-based system. In Germany, economic strength is considered in federal representation, ensuring prosperous regions have a proportional voice in governance. India could explore a similar model to balance population and economic output.

• Risk of Political Manipulation: There is concern that political parties may influence the delimitation process to create electoral advantages. Gerrymandering—manipulating electoral boundaries to favor a particular party—can weaken democratic fairness. In the past, opposition parties have accused ruling governments of influencing delimitation for electoral benefits.
  • The Jammu and Kashmir Delimitation Commission (2022) allocated six additional seats to the Jammu region and only one to Kashmir, despite the latter having a higher population. This led to allegations that the process was politically motivated to favor one region over another.

Way Forward

• Implement Expert Recommendations: Various commissions have proposed reforms to balance federal concerns:

• • • Sarkaria Commission (1983): Advocated for a balanced approach to federalism and national unity.
    • Punchhi Commission (2010): Suggested equal consideration for population size and governance efficiency.

• Strengthen Transparency and Oversight:

• • • The Election Commission should be empowered to oversee the process independently.
    • The Supreme Court’s rulings in Kuldip Nayar v. Union of India (2006) and TN Seshan v. Union of India (1995) emphasized the importance of an independent election body for fair representation.

• Introduce Constitutional and Legislative Reforms: 

• • • Amend Articles 81 and 82 to ensure a fair balance in regional representation.
    • Explore proportional representation models, as seen in Germany and Canada, to create a more inclusive system.

• Policy Suggestions: 

• • Weighted Representation Model: Combine factors like population, economic strength, and governance efficiency.
  • Independent Delimitation Commission: Free from political interference, ensuring transparency.
  • Phased Implementation: A gradual transition to prevent political instability and ensure smooth adjustments.