Managing the margins: intersections of the state and the Khawaja Sira in Lahore, Pakistan

Social equity research in public administration (PA) investigates different ways in which the practices of government intersect with the lives of socially marginalized individuals. However, due to limited direct engagement with marginalized groups; a predominant focus on formal state policies and institutions; and a lack of context-specific analyses of marginalization, there remain significant limitations in the existing PA research on social equity.

To address these theoretical gaps, this dissertation focuses on the Khawaja Sira of Pakistan – a marginalized group culturally defined as neither men nor women – to empirically investigate the multiple intersections between government and life on margins of the state. Specifically, this dissertation explores research questions related to legal and self-identity of the Khawaja Sira, impact of their changed legal status, their informal institutional experiences, and their interaction with front-line government workers through an interpretive research methodology.

The research design consisted of a ten-month long person-centered ethnography in Lahore, Pakistan during which in-depth person-centered interviews were conducted with 50 Khawaja Sira. I also conducted semi-structured interviews with 19 frontline workers from National Database and Registration Authority (NADRA), social welfare department, and a local NGO and a group interview with 12 frontline workers of police. I coded the data collected from the fieldwork using qualitative thematic content analysis in MAXQDA. I then analyzed the main themes from the data using multiple theoretical perspectives to develop my findings.

My analysis shows that the legal identity of the Khawaja Sira, as conceived by the Supreme Court of Pakistan, has limited relevance and benefits for the Khawaja Sira most of whom instead choose to register as men. The analysis of administrator-citizen interactions reveals that the Khawaja Sira are exposed to hyper-surveillance, moral policing and higher administrative burden during these interactions. These interactions are also strongly mediated by formal public policy, social discourses about gender identity and informal institutions. I discuss the implications of my analysis that can contribute to a more inclusive society for the Khawaja Sira. In doing so, my research makes important contributions to research on administrative burden, everyday citizenship, and social equity in public administration.