India-The Congress

The Congress has, by any standards, remarkable political accomplishments to its credit. As the Indian National Congress, its guidance fashioned a nation out of an extraordinarily heterogeneous ensemble of peoples. The party has played an important role in establishing the foundations of perhaps the most durable democratic political system in the developing world. As scholars Francis Robinson and Paul R. Brass point out, the Congress constituted one of the few political organizations in the annals of decolonialization to "make the transition from being sole representative of the nationalist cause to being just one element of a competitive party system."

The Congress dominated Indian politics from independence until 1967. Prior to 1967, the Congress had never won less than 73 percent of the seats in Parliament. The party won every state government election except two--most often exclusively, but also through coalitions--and until 1967 it never won less than 60 percent of all elections for seats in the state legislative assemblies.

There were four factors that accounted for this dominance. First, the party acquired a tremendous amount of good will and political capital from its leadership of the nationalist struggle. Party chiefs gained substantial popular respect for the years in jail and other deprivations that they personally endured. The shared experience of the independence struggle fostered a sense of cohesion, which was important in maintaining unity in the face of the party's internal pluralism.

The second factor was that the Congress was the only party with an organization extending across the nation and down to the village level. The party's federal structure was based on a system of internal democracy that functioned to resolve disputes among its members and maintain party cohesion. Internal party elections also served to legitimate the party leadership, train party workers in the skills of political competition, and create channels of upward mobility that rewarded its most capable members.

A third factor was that the Congress achieved its position of political dominance by creating an organization that adjusted to local circumstances rather than transformed them, often reaching the village through local "big men" (bare admi ) who controlled village "vote banks." These local elites, who owed their position to their traditional social status and their control over land, formed factions that competed for power within the Congress. The internal party democracy and the Congress's subsequent electoral success ultimately reinforced the local power of these traditional elites and enabled the party to adjust to changes in local balances of power. The nonideological pragmatism of local party leadership made it possible to coopt issues that contributed to opposition party success and even incorporate successful opposition leaders into the party. Intraparty competition served to channel information about local circumstances up the party hierarchy.

Fourth, patronage was the oil that lubricated the party machine. As the state expanded its development role, it accumulated more resources that could be distributed to party members. The growing pool of opportunities and resources facilitated the party's ability to accommodate conflict among its members. The Congress enjoyed the benefits of a "virtuous cycle," in which its electoral success gave it access to economic and political resources that enabled the party to attract new supporters.

The halcyon days of what Indian political scientist Rajni Kothari has called "the Congress system" ended with the general elections in 1967. The party lost seventy-eight seats in the Lok Sabha, retaining a majority of only twenty-three seats. Even more indicative of the Congress setback was its loss of control over six of the sixteen state legislatures that held elections. The proximate causes of the reversal included the failure of the monsoons in 1965 and 1966 and the subsequent hardship throughout northern and eastern India, and the unpopular currency devaluation in 1966. However, profound changes in India's polity also contributed to the decline of the Congress. The rapid growth of the electorate, which increased by 45 percent from 1952 to 1967, brought an influx of new voters less appreciative of the Congress's role in the independence movement. Moreover, the simultaneous spread of democratic values produced a political awakening that mobilized new groups and created a more pluralistic constellation of political interests. The development of new and more-differentiated identities and patterns of political cleavage made it virtually impossible for the Congress to contain the competition of its members within its organization. Dissidence and ultimately defection greatly weakened the Congress's electoral performance.

It was in this context that Indira Gandhi asserted her independence from the leaders of the party organization by attempting to take the party in a more populist direction. She ordered the nationalization of India's fourteen largest banks in 1969, and then she supported former labor leader and Acting President Varahagiri Venkata Giri's candidacy for president despite the fact that the party organization had already nominated the more conservative Neelam Sanjiva Reddy. After Giri's election, the party organization expelled Indira Gandhi from the Congress and ordered the parliamentary party to choose a new prime minister. Instead, 226 of the 291 Congress members of Parliament continued to support Indira Gandhi. The Congress split into two in 1969, the new factions being the Congress (O)--for Organisation--and Mrs. Gandhi's Congress (R)--for Requisition. The Congress (R) continued in power with the support of non-Congress groups, principally the Communist Party of India (CPI) and the Dravida Munnetra Kazhagam (DMK--Dravidian Progressive Federation).

With the Congress (O) controlling most of the party organization, Indira Gandhi adopted a new strategy to mobilize popular support. For the first time ever, she ordered parliamentary elections to be held separately from elections for the state government. This delinking was designed to reduce the power of the Congress (O)'s state-level political machines in national elections. Mrs. Gandhi traveled throughout the country, energetically campaigning on the slogan "garibi hatao " (eliminate poverty), thereby bypassing the traditional Congress networks of political support. The strategy proved successful, and the Congress (R) won a dramatic victory. In the 1971 elections for the Lok Sabha, the Congress (R) garnered 44 percent of the vote, earning it 352 seats. The Congress (O) won only sixteen seats and 10 percent of the vote. The next year, after leading India to victory over Pakistan in the war for Bangladesh's independence, Indira Gandhi and the Congress (R) further consolidated their control over the country by winning fourteen of sixteen state assembly elections and victories in 70 percent of all seats contested.

The public expected Indira Gandhi to deliver on her mandate to remove poverty. However, the country experienced a severe drought in 1971 and 1972, leading to food shortages, and the price of food rose 20 percent in the spring of 1973. The decision by the Organization of the Petroleum Exporting Countries (OPEC) to quadruple oil prices in 1973-74 also led to inflation and increased unemployment. Jayaprakash (J.P) Narayan, a socialist leader in the preindependence Indian National Congress who, after 1947, left to conduct social work in the Sarvodaya movement (sarvodaya means uplift of all), came out of retirement to lead what eventually became widely known as the "J.P. movement." Under Narayan's leadership, the movement toppled the government of Gujarat and almost brought down the government in Bihar; Narayan advocated a radical regeneration of public morality that he labelled "total revolution."

After the Allahabad High Court ruled that Mrs. Gandhi had committed electoral law violations and Narayan addressed a massive demonstration in New Delhi, at Indira Gandhi's behest, the president proclaimed an Emergency on June 25, 1975. That night, Indira Gandhi ordered the arrest of almost all the leaders of the opposition, including dissidents within the Congress. In all, more than 110,000 persons were detained without trial during the Emergency.

Indira Gandhi's rule during the Emergency alienated her popular support. After postponing elections for a year following the expiration of the five-year term of the Lok Sabha, she called for new elections in March 1977. The major opposition party leaders, many of whom had developed a rapport while they were imprisoned together under the Emergency regime, united under the banner of the Janata Party. By framing the key issue of the election as "democracy versus dictatorship," the Janata Party--the largest opposition party--appealed to the public's democratic values to rout the Congress (R). The vote share of the Congress (R) dropped to 34.5 percent, and the number of its seats in Parliament plunged from 352 to 154. Indira Gandhi lost her seat.

The inability of Janata Party factions to agree proved the party's undoing. Indira Gandhi returned to win the January 1980 elections after forming a new party, the Congress (I--for Indira), in 1978.

The Congress (I) largely succeeded in reconstructing the traditional Congress electoral support base of Brahmans (see Glossary), Muslims, Scheduled Castes, and Scheduled Tribes that had kept Congress in power in New Delhi during the three decades prior to 1977. The Congress (I)'s share of the vote increased by 8.2 percent to 42.7 percent of the total vote, and its number of seats in the Lok Sabha grew to 353, a majority of about two-thirds. This success approximated the levels of support of the Congress dominance from 1947 to 1967. Yet, as political scientist Myron Weiner observed, "The Congress party that won in 1980 was not the Congress party that had governed India in the 1950s and 1960s, or even the early 1970s. The party was organizationally weak and the electoral victory was primarily Mrs. Gandhi's rather than the party's." As a consequence, the Congress's appeal to its supporters was much more tenuous than it had been in previous decades.

Indira Gandhi's dependence on her flamboyant son Sanjay and, after his accidental death in 1980, on her more reserved son Rajiv gives testimony to the personalization and centralization of power within the Congress (I). Having developed a means to mobilize support without a party organization, she paid little attention to maintaining that support. Rather than allowing intraparty elections to resolve conflicts and select party leaders, Indira Gandhi preferred to fill party posts herself with those loyal to her. As a result, party leaders at the state level lost their legitimacy among the rank and file because their positions depended on the whims of Indira Gandhi rather than on the extent of their popular support. In addition, centralization and the demise of democracy within the party disrupted the flow of information about local circumstances to party leaders and curtailed the ability of the Congress (I) to adjust to social change and incorporate new leaders.

When Rajiv Gandhi took control after his mother's assassination in November 1984, he attempted to breathe new life into the Congress (I) organization. However, the massive electoral victory that the Congress (I) scored under Rajiv's leadership just two months after his mother's assassination gave him neither the skill nor the authority to succeed in this endeavor. Rajiv did, however, attempt to remove the more unsavory elements within the party organization. He denied nominations to one-third of the incumbent members of Parliament during the 1984 Lok Sabha campaign, and he refused to nominate two of every five incumbents in the state legislative assembly elections held in March 1985.

Another of Rajiv's early successes was the passage of the Anti-Defection Bill in January 1985 in an effort to end the bribery that lured legislators to cross partisan lines. Speaking at the Indian National Congress centenary celebrations in Bombay (officially called Mumbai as of 1995), Rajiv launched a vitriolic attack on the "culture of corruption" that had become so pervasive in the Congress (I). However, the old guard showed little enthusiasm for reform. As time passed, Rajiv's position was weakened by the losses that the party suffered in a series of state assembly elections and by his government's involvement in corruption scandals. Ultimately, Rajiv was unable to overcome the resistance within the party to internal elections and reforms. Ironically, as Rajiv's position within the party weakened, he turned for advice to many of the wheelers and dealers of his mother's regime whom he had previously banished.

The frustration of Rajiv Gandhi's promising early initiatives meant that the Congress (I) had no issues on which to campaign as the end of his five-year term approached. On May 15, 1989, just months before its term was to expire, the Congress (I) introduced amendments that proposed to decentralize government authority to panchayat and municipal government institutions. Opposition parties, many of whom were on record as favoring decentralization of government power, vehemently resisted the Congress (I) initiative. They charged that the initiative did not truly decentralize power but instead enabled the central government to circumvent state governments (many of which were controlled by the opposition) by transferring authority from state to local government and strengthening the links between central and local governments. After the Congress (I) failed to win the two-thirds vote required to pass the legislation in the Rajya Sabha on October 13, 1989, it called for new parliamentary elections and made "jana shakti" (power to the people) its main campaign slogan.

The Congress (I) retained formidable campaign advantages over the opposition. The October 17, 1989, announcement of elections took the opposition parties by surprise and gave them little time to form electoral alliances. The Congress (I) also blatantly used the government-controlled television and radio to promote Rajiv Gandhi. In addition, the Congress (I) campaign once again enjoyed vastly superior financing. It distributed some 100,000 posters and 15,000 banners to each of its 510 candidates. It provided every candidate with six or seven vehicles, and it commissioned advertising agencies to make a total of ten video films to promote its campaign.

The results of the 1989 elections were more of a rebuff to the Congress (I) than a mandate for the opposition. Although the Congress (I) remained the largest party in Parliament with 197 seats, it was unable to form a government. Instead, the Ja-nata Dal, which had 143 seats, united with its National Front allies to form a minority government precariously dependent on the support of the BJP (eighty-five seats) and the communist parties (forty-five seats). Although the Congress (I) lost more than 50 percent of its seats in Parliament, its share of the vote dropped only from 48.1 percent to 39.5 percent of the vote. The Congress (I) share of the vote was still more than double that of the next largest party, the Janata Dal, which received support from 17.8 percent of the electorate. More grave for the long-term future of the Congress (I) was the erosion of vital elements of the traditional coalition of support for the Congress (I) in North India. Alienated by the Congress (I)'s cultivation of Hindu activists, Muslims defected to the Janata Dal in large numbers. The Congress (I) simultaneously lost a substantial share of Scheduled Caste voters to the BSP in Haryana, Madhya Pradesh, and Uttar Pradesh and to the Indian People's Front in Bihar.

To offset these losses, the Congress (I) attempted to play a "Hindu card." On August 14, 1989, the Supreme Court ruled that no parties or groups could disturb the status quo of the Babri Masjid, a sixteenth-century mosque in Ayodhya, Uttar Pradesh. The mosque was controversial because Hindu nationalists claim it was on the site of the birthplace of the Hindu god Ram and that, as such, the use by Muslims was sacrilegious (see Vishnu, ch. 3). Despite the court ruling, in September the Congress (I) entered into an agreement with the Vishwa Hindu Parishad (VHP--World Hindu Council), a conservative religious organization with close ties to Hindu nationalists, to allow the VHP to proceed with a ceremony to lay the foundation for the Ramjanmabhumi (birthplace of Ram) Temple. (The VHP had been working toward this goal since 1984.) In return, the Congress (I) secured the VHP's agreement to perform the ceremony on property adjacent to the Babri Masjid that was not in dispute. By reaching this agreement, the Congress (I) attempted to appeal to Hindu activists while retaining Muslim support. Rajiv Gandhi's decision to kick off his campaign less than six kilometers from the Babri Masjid and his appeal to voters that they vote for the Congress (I) if they wished to bring about "Ram Rajya" (the rule of Ram) were other elements of the Congress (I)'s strategy to attract the Hindu vote (see Political Issues, this ch.)

The 1991 elections returned the Congress (I) to power but did not reverse important trends in the party's decline. The Congress (I) won 227 seats, up from 197 in 1989, but its share of the vote dropped from 39.5 percent in 1989 to 37.6 percent. Greater division within the opposition rather than growing popularity of the Congress (I) was the key element in the party's securing an increased number of seats. Also troubling was the further decline of the Congress (I) in heavily populated Bihar and Uttar Pradesh, which together account for more than 25 percent of all seats in Parliament. In Uttar Pradesh, the number of seats that the Congress (I) was able to win went down from fifteen to two, and its share of the vote dropped from 32 percent to 20 percent. In Bihar the seats won by the Congress (I) fell from four to one, and the Congress (I) share of the vote was reduced from 28 percent to 22 percent. The Congress (I) problems in these states, which until 1989 had been bastions of its strength, were reinforced by the party's poor showing in the November 1993 state elections. These elections were characterized by the further disintegration of the traditional Congress coalition, with Brahmans and other upper castes defecting to the BJP and Scheduled Castes and Muslims defecting to the Janata Dal, the Samajwadi Party (Socialist Party), and the BSP.

Strong evidence indicates that the Congress (I) would have fared significantly worse had it not been for the assassination of Rajiv Gandhi in the middle of the elections. A wave of sympathy similar to that which helped elect Rajiv after the assassination of his mother increased the Congress (I) support. In the round of voting that took place before Rajiv's death, the Congress (I) won only 26 percent of the seats and 33 percent of the vote. In the votes that occurred after Rajiv's death, the Congress (I) won 58 percent of the seats and 40 percent of the popular vote. It may also be that Rajiv's demise ended the "anti-Congressism" that had pervaded the political system as a result of his family's dynastic domination of Indian politics through its control over the Congress.

Rajiv Gandhi was assassinated by a Tamil suicide bomber affiliated with the Sri Lankan Liberation Tigers of Tamil Eelam (LTTE) during a political campaign in May 1991. Only after his assassination did hope for reforming the Congress (I) reappear. The end of three generations of Nehru-Gandhi family leadership left Rajiv's coterie of political manipulators in search of a new kingpin. The bankruptcy of the Congress (I) leadership was highlighted by the fact that they initially turned to Sonia Gandhi, Rajiv's Italian-born wife, to lead the party. Sonia's primary qualification was that she was Rajiv's widow. She had never held elected office and, during her early years in India, she had expressed great disdain for political life. However, although she did not assume a leadership role, she continued to be seen as a "kingmaker" in the Congress (I). Her advice was sought after, and she was called on to lead the party in the mid-1990s. An unusual public speech by Sonia Gandhi criticizing the government of P.V. Narasimha Rao in August 1995 further fueled speculation that she was a candidate for political leadership.

Sonia Gandhi's refusal in 1991 to become president of the Congress (I) led the mantle of party leadership to fall on Rao. Rao was a septuagenarian former professor who had retired from politics before the 1991 elections after undergoing heart-bypass surgery. Rao had a conciliatory demeanor and was acceptable to the party's contending factions. Paradoxically, the precariously positioned Rao was able to take more substantial steps in the direction of party reform than his predecessors. First, Rao had to demonstrate that he could mobilize popular support for himself and the party, a vital currency of power for any Congress (I) leader. He did so in the November 15, 1991, by-elections by winning his own seat in Andhra Pradesh unopposed and leading the party to victory in a total of eight of the fifteen parliamentary by-elections. By the end of 1991, Rao had succeeded in initiating the first intraparty elections in the Congress in almost twenty years. Although there was widespread manipulation by local party bosses, the elections enhanced the legitimacy of party leaders and held forth the prospect of a rejuvenated party organization. The process culminated in April 1992 at the All-India Congress (I) Committee at Tirupati, Andhra Pradesh, where elections were held for the ten vacant seats in the Congress Working Committee.

In the wake of the Tirupati session, Rao became less interested in promoting party democracy and more concerned with consolidating his own position. The change was especially apparent in the 1993 All-India Congress (I) Committee session at Surajkund (in Haryana), where Rao's supporters lavishly praised the prime minister and coercively silenced his opponents. However, Rao's image was damaged in July 1993 after Harshad Mehta, a stockbroker under indictment for allegedly playing a leading role in a US$2 billion stock scam in 1992, accused Rao of personally accepting a bribe that he had delivered on November 4, 1991. The extent of the press coverage of the charges and their apparent credibility among the public was evidence of the pervasive public cynicism toward politicians. Rao's stock in the party and Congress (I)'s position within Parliament were greatly weakened. On July 28, 1993, his government barely survived a no-confidence motion in the Lok Sabha. Rao's position was temporarily strengthened at the end of 1993 when he was able to cobble together a parliamentary majority. However, support for Rao and the Congress (I) declined again in 1994. The party was rocked by a scandal relating to the procurement of sugar stocks that cost the government an estimated Rs6.5 billion (US$210 million; for value of the rupee--see Glossary) and by losses in legislative assembly elections in Andhra Pradesh--Rao's home state, where he personally took control over the campaign--and Karnataka. The Congress (I) again lost in three of four major states in elections held in the spring of 1995. The political fallout in New Delhi was an increase in dissident activity within the Congress (I) led by former cabinet members Narain Dutt Tiwari and Arjun Singh and other Rao rivals who sought to split the Congress and form a new party.

Data as of September 1995