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This study explores the relationship between the state and democracy in India in the late 1980s, through an examination of" challenges to state policy in three important areas: welfare, secularism and development. It was inspired by the observation that, while there are several studies analysing the relationship of democracy and development - albeit mostly of how democracy constrains development - as well as some studies of the impact of democracy on governability, there appears to be no cross-sectoral investigation into the question of the impact of democratic institutions and processes on state-initiated goals of social transformation, and its ability to effect these. This is the gap that this study seeks to fill.

Section 2 generalizes some concepts in directed graphs to configurations, called bigraph, which have directed as well as undirected lines. Several relations are defined in terms of a bigraph. Conditions are found under which it is possible to find weak, partial, and simple orders as well as preference relations. An application of this theory is found in following sections 3 and 4. These sections deal with the estimation of an order relation from paired comparisons in which ties may occur. (Author).