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GOVERNMENT Overview: India is a democratic republic with a system of government legally based on the often-amended 1950 constitution. The central government is also known as the union government, and its structure is much like the British parliamentary system, with distinct, but interrelated executive, legislative, and judicial branches. State governments are structured much like the central government, and district governments exist in a variety of forms. The Indian parliament is a bicameral legislature composed of a lower house (the Lok Sabha or House of the People), with 543 popularly elected members and 2 members appointed by the president, and an upper house (the Rajya Sabha or Council of States), with 12 appointed members and 233 members elected by state and union territory assemblies. Lok Sabha members serve five-year terms, and Rajya Sabha members serve six-year terms, with one-third of members up for election every two years. The legislature passes laws on constitutionally specified matters, such as central government finances and constitutional amendments. The two houses have the same powers, but the Rajya Sabha’s power in the legislative process is subordinate to the Lok Sabha.

India has both a prime minister and a president. Members of parliament and state legislative assemblies elect the president, currently A.P.J. Abdul Kalam, who was elected in 2002. Prime ministers are leaders of the majority party in parliament but are formally appointed by the president. In 2004 Manmohan Singh became prime minister when his Indian National Congress party defeated the Bharatiya Janata Party led by Singh’s predecessor as prime minister, Atal Bihari Vajpayee. Over time, political power has become increasingly concentrated in the prime minister and Council of Ministers (cabinet), although they are responsible to the parliament. The president’s duties are mostly ceremonial, although the president formally approves the prime minister and also approves the Council of Ministers based on the prime minister’s advice. Furthermore, all bills require presidential approval before becoming law. The vice president is ex officio chairperson of the Rajya Sabha and acts in place of the president when the president is unable to perform his or her duties.

The Supreme Court is the top legal entity, and it is composed of a chief justice appointed by the president and 25 associate judges also appointed by the president in consultation with the chief justice. The Supreme Court has numerous legal powers, such as appellate jurisdiction over all civil and criminal proceedings, with the potential of influencing interpretation of the constitution. The parliament and Supreme Court have maintained a contentious relationship on issues related to judicial review and parliamentary sovereignty. Below the Supreme Court are high courts, followed by a hierarchy of subordinate courts, and some states also have panchayat (village-level) courts that decide civil and criminal matters. Some high courts serve more than one state, and all are independent of state legislatures and executives. The judiciary is regarded as slow and cumbersome but is also widely respected and often takes an activist role in protecting citizens’ rights.

Since independence, India has experienced a plethora of political successes and problems. Corruption, communal conflicts, and rural economic development remain difficult political issues. Furthermore, some analysts believe the government’s inclusive design could undermine governing capacity and national unity as political parties and social groups press for their respective parochial interests. Yet the country maintains a democratic system of government with civil liberties that are often lacking in many poor, ethnically diverse societies. India also has an impressive record of economic development and a demonstrable commitment to correcting traditional social oppression. A wide variety of social groups have held elected office, and women, Sikhs, Muslims, and dalits have served as either president or prime minister. In 2004 there were 45 women elected to the Lok Sabha, and both dalits and indigenous groups have a certain minimum number of reserved seats in the Lok Sabha and state assemblies based on their respective percentages of the population.

Administrative Divisions: There are twenty-eight states and seven union territories including the national capital territory of New Delhi. State boundaries are often based on language or other social characteristics, and union territories tend to be geographically smaller and less populous than states. States and union territories contain 601 districts that are further subdivided into townships containing from 200 to 600 villages. The union government exercises greater control over union territories than over states, but the division of power between the union and state governments can appear blurred and even chaotic at times. Relationships between some state governments and the union government have been contentious, particularly when state governments are run by political parties that oppose the governing party or coalition in parliament. The tremendous variations in economic and social development among states suggest that state governments can have a greater influence on their populations than the union government. However, the union government still exercises considerable influence on states through numerous financial resources and its authority to assume control of states during times of emergency (called President's Rule), which the union government has done nearly 100 times since 1947.

Provincial and Local Government: Union territories have a council of ministers, a legislature, and a high court, but they are largely governed by the central or union government through a lieutenant governor or chief commissioner appointed by the prime minister. The structure of state governments largely mirrors that of the union government, with each state having a legislative assembly, chief minister, and high court. State government policies are largely implemented through state-level agencies, but union government agencies are also prevalent at local levels. District and local governments are generally weak, although some states have attempted to establish traditional village councils (panchayats) to address local matters.

State legislatures are usually unicameral with a legislative assembly composed of members elected for five-year terms. Bicameral state legislatures also have a legislative council that is largely advisory in its capacities, with members directly elected, indirectly elected, or nominated. States’ chief ministers are the leaders of majority parties in state legislatures, and just as the prime minister is accountable to parliament, chief ministers are answerable to state legislatures. However, the popularity and party support of some chief ministers enable them to have some autonomy from their state legislature and a degree of influence that rivals that of the union government. States also have governors that are appointed by the president and accountable to the dominant political party in parliament. Although the position is largely honorific, governors do have important powers such as formal approval of chief ministers and their cabinets as well as the authority to recommend that the union government take control of a state government during times of emergency (President’s Rule).

Judicial and Legal System: The legal system is derived from English common law and based on the 1950 constitution. Judges decide cases, and there is no trial by jury. Defendants can choose counsel independent of the government, and the government provides free legal counsel for defendants unable to afford such. The judiciary enforces the right to fair trial, and there are effective channels for appeal, but the judicial system is so overburdened with a case backlog that some courts barely function. In non-criminal matters, the government does not interfere with the personal status laws of Muslims and other communities on matters dealing with family law, inheritance, divorce, and discrimination against women.

The Indian constitution contains civil liberties called Fundamental Rights that are guaranteed to all citizens and include equality before the law and freedoms of speech, expression, religion, and association. Freedom of the press is not explicitly stated but is widely interpreted as included in the freedoms of speech and expression. The Fundamental Rights were also created with the objective of addressing historical social injustices and legally prohibit bonded labor, human trafficking, and discrimination based on religion, sex, race, caste, and birthplace. Still, the government has the authority to limit civil liberties in order to preserve public order, protect national security, and for other reasons.

Electoral System: The Election Commission is the independent government body that supervises parliamentary and state elections, which are massive and sometimes marred by violence. Elections for state assemblies and the Lok Sabha are held every five years unless called earlier, such as through a no-confidence vote of the government by the Lok Sabha. Indeed, elections are often held before the five-year limits because governments have often had difficulty staying in power for the full five-year term. In the 2004 general elections, there were more than 687,000 polling stations and 671.5 million voters. Since 1952, there have been 14 general elections, with voter turnout ranging from 55 to 64 percent of eligible voters. The legal voting age is 18. National and state legislative elections are similar to the British House of Commons and United States House of Representatives, in which members gain office by winning a plurality of votes in their local constituency. There are 543 parliamentary constituencies. The number of constituencies for state legislatures ranges from 32 to 403, with a total of 4,120 state constituencies nationwide.

Politics and Political Parties: From independence (1947) until 1989, the left-of-center Indian National Congress and its factions dominated national politics. In the 1990s, the center-right Bharatiya Janata Party (BJP) and the centrist Janata Dal emerged as influential political parties, although Congress returned to power in May 2004 with Manmohan Singh as prime minister. There are numerous national and state parties. Among the best known and most prominent are: Akali Dal, All-India Anna DMK (AIADMK), Asom Gana Parishad, Bahujan Samaj Party (BSP), Bharatiya Janata Party (BJP), Communist Party of India (CPI), Communist Party of India-Marxist (CPI-M), Dravida Munnetra Kazhagam (DMK), Indian National Congress, Rashtriya Janata Dal (RJD), Samajwadi Party, Samata Party, Shiv Sena, and Telugu Desam.

Since the late 1960s, minority parties in Parliament have often been majority parties in state legislatures. Since 1989, single political parties have generally failed to win a parliamentary majority. As a result, parliament is often run by coalitions of political parties. It is believed that the emergence of multiparty governments is caused by voters’ frustration with political corruption and the fragmentation of electorate support among the growing number of political parties that represent specific parochial or local interests. Thus, those parties have strong support only in particular states. Furthermore, lower castes and other social groups have become more involved in politics as both voters and politicians. It remains to be seen if these trends are indicative of increasing social fragmentation as parties attempt to advance parochial interests or simply the result of a socially diverse population’s increasing participation in politics.

Mass Media: India has more newspapers than any other nation, and newspaper readership annually grows by millions. There are a few state-run newspapers, but most print media are privately owned. There are more than 5,600 daily newspapers and more than 46,000 non-daily newspapers and print periodicals. In 2002 the government allowed print media to be up to 26 percent foreign owned, but the most powerful publishers are joint stock companies that frequently have other commercial and industrial holdings. Government authorities control most television channels, yet the growth of private FM and television stations has marked a shift away from mostly state-run electronic media such as Doordarshan (television) and All India Radio. Foreign television channels are available through cable television or Indian broadcasters. An estimated 42.3 percent of Indian households have a television, and 52.2 percent of those have cable or satellite transmission. Similarly, the number of Internet users has rapidly to an estimated 18.4 million users in 2003. Article 19 of India’s constitution ensures freedom of speech and expression, but Article 19 also allows the government to place “reasonable restrictions” on the exercise of those rights under various circumstances, such as maintenance of public order, state security, and public morality. India does have a high degree of press and speech freedom, and the nation is not generally regarded as a major violator of civil liberties by international human rights organizations. However, the government and police have been accused of violating journalists’ civil liberties.

Foreign Relations: India’s Ministry of External Affairs is the governmental body that is officially responsible for making and implementing foreign policy, although India’s prime ministers have often exercised substantial influence in foreign policy decision making. India’s parliament and armed forces historically have had very limited roles in the formulation of foreign policy.

India’s relations with all major nations traditionally have been based on principles of nonalignment and India’s own economic development. The overlapping domestic and external dimensions of India’s economic development continue to illustrate that many matters related to India’s ongoing formation as a nation have international security implications. Attempts to promote economic growth have pushed India from its previous emphasis on domestic self-sufficiency to a major promoter of free trade and economic liberalization. Nonalignment, however, has been seriously tested as a viable basis for foreign policy with the erosion of U.S. and Soviet tensions and with India’s interest in playing an influential role in regional and world politics. The demise of India’s long-term ally the Soviet Union cost India precious military and financial aid as well as international leverage. Some analysts argue that India’s demonstration of nuclear capabilities in 1998 was driven as much by domestic desires to protect Indian influence and prestige internationally as by regional security concerns. Post-Cold War shifts in military power and concerns with terrorism have led India to create stronger bilateral relations with China, Israel, the United States, and other nations.

The Ministry of External Affairs has generally been most concerned with relations with neighboring Nepal, Sri Lanka, and particularly Pakistan on issues concerning unresolved borders, natural resource distribution, immigration, and insurgent activity. India has often tried to use treaties, alliances, and economic coercion to counter actions by neighbors that India regards as security threats, although China and Pakistan have generally thwarted such attempts. Indeed, India’s security concerns have been most pronounced with Pakistan, as exemplified by the two countries’ newfound nuclear rivalry, the 1999 Kargil War in Jammu and Kashmir, and the 2001 terrorist attack on India’s parliament, which Pakistan is suspected of supporting. In spite of these difficulties, tensions between India and Pakistan have periodically thawed, and in late 2004 the two countries demonstrated surprising public interest in resolving their enduring dispute over Jammu and Kashmir.

Membership in International Organizations: India is a member of numerous international organizations including: African Development Bank, Asian Development Bank, Association of Southeast Asian Nations (dialogue partner), Bank for International Settlements, Colombo Plan, Commonwealth, Food and Agriculture Organization of the United Nations, Group of Six, Group of 15, Group of 24, Group of 77, International Atomic Energy Agency, International Bank for Reconstruction and Development, International Chamber of Commerce, International Civil Aviation Organization, International Confederation of Free Trade Unions, International Development Association, International Federation of Red Cross and Red Crescent Societies, International Finance Corporation, International Fund for Agricultural Development, International Hydrographic Organization, International Labour Organization, International Maritime Organization, International Monetary Fund, International Olympic Committee, International Organization for Migration (observer), International Organization for Standardization, International Red Cross and Red Crescent Movement, International Telecommunication Union, Interpol, Nonaligned Movement, Organisation for the Prohibition of Chemical Weapons, Organization of American States (observer), Permanent Court of Arbitration, South Asian Association for Regional Cooperation, United Nations, United Nations Conference on Trade and Development, United Nations Educational, Scientific and Cultural Organization, United Nations High Commissioner for Refugees, United Nations Industrial Development Organization, United Nations Monitoring, Verification and Inspection Commission, Universal Postal Union, World Confederation of Labor, World Customs Organization, World Federation of Trade Unions, World Health Organization, World Intellectual Property Organization, World Meteorological Organization, World Tourism Organization, and World Trade Organization.

Major International Treaties: India is a signatory to numerous international treaties including: the Antarctic Treaty, Basel Convention on the Control of Transboundary Movements of Hazardous Substances, Biological and Toxin Weapons Convention, Chemical Weapons Convention, Conference on Disarmament, Convention on Biological Diversity, Convention on International Trade in Endangered Species of Wild Flora and Fauna, Convention on Migratory Species, Convention on the Physical Protection of Nuclear Material, Convention on the Prohibition of Military or Any Other Hostile Use of Environmental Modification Techniques, Convention on Wetlands of International Importance Especially as Waterfowl Habitat, Geneva Protocol, International Atomic Energy Association Safeguards Agreement, International Convention for the Regulation of Whaling, International Plant Protection Convention, International Tropical Timber Agreement 1983, International Tropical Timber Agreement 1994, Kyoto Protocol to the United Nations Framework Convention on Climate Change, Montreal Protocol on Substances that Deplete the Ozone layer, Nuclear Safety Convention, Partial Test Ban Treaty, Protocol of 1978 Relating to the International Convention for the Prevention of Pollution from Ships, Protocol on Environmental Protection to the Antarctic Treaty, United Nations Convention on the Law of the Sea, United Nations Convention to Combat Desertification, United Nations Framework Convention on Climate Change, and Vienna Convention for the Protection of the Ozone Layer. India is not a party to the Treaty on the Non-Proliferation of Nuclear Weapons (NPT) or the Missile Technology Control Regime. Indian governments have argued that the NPT does not reduce nuclear weapons proliferation by states already possessing nuclear weapons and that the NPT denies non-nuclear states the right to have nuclear weapons.

PUBLISHER / AUTHOR: This series of profiles of foreign nations is part of the Country Studies Program, formerly the Army Area Handbook Program. The profiles offer brief, summarized information on a country's historical background, geography, society, economy, transportation and telecommunications, government and politics, and national security. In addition to being featured in the front matter of published Country Studies, they are now being prepared as stand-alone reference aides for all countries in the series, as well as for a number of additional countries of interest. The profiles offer reasonably current country information independent of the existence of a recently published Country Study and will be updated annually or more frequently as events warrant.

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