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Strategy and Vision in Politics. Jawaharlal Nehru's Policy Choices

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Strategy and Vision in Politics. Jawaharlal Nehru's Policy Choices View metadata, citation and similar papers at core.ac.uk brought to you by CORE provided by Heidelberger Dokumentenserver Strategy and Vision in Politics. Jawaharlal Nehru’s policy choices and the designing of political institutions. Inauguraldissertation zur Erlangung des akademischen Grades Dr. rer. pol. im Fach Politikwissenschaft vorgelegt von: JIVANTA SCHÖTTLI, M.Sc. Eingereicht an der Fakultät für Wirtschafts- und Sozialwissenschaften der Ruprecht-Karls-Universität Heidelberg im Sommer Semester 2009 Strategy and Vision in Politics. Jawaharlal Nehru’s policy choices and the designing of political institutions. Inauguraldissertation zur Erlangung des akademischen Grades Dr. rer. pol. im Fach Politikwissenschaft vorgelegt von: JIVANTA SCHÖTTLI, M.Sc. Eingereicht an der Fakultät für Wirtschafts- und Sozialwissenschaften der Ruprecht-Karls-Universität Heidelberg im Sommer Semester 2009 DOCTORVATER: Prof. SUBRATA K. MITRA, Ph.D. (Rochester) Contents List of Figures & Tables vi. Chapter One: The art and craft of policy-making. 1.1. The Problem Stated 1 - 4 1.2. Research Design 5 - 10 1.3. Modernisation, political development and political disorder in political science 10 - 29 1.4. Nehruana literature 30 - 43 1.5. Conclusion 44 – 47 Chapter Two: Epistemology, Theory and Methodology. 2.1. Introduction 48 - 49 2.2. Rationality, methodological individualism and the ‘Cunning of Reason’ 49 - 54 2.3. New Institutionalism & Path Dependence: explaining inefficiencies in history 54 - 60 2.4. The Analytic Narrative and Historical Institutionalism 60 - 68 2.5. Path Dependency and Policy Studies 68 - 70 2.6. Designing a model: vision and strategy in policy-making 70 - 71 2.6.1. The Puzzle: designing stable institutions in times of change 72 - 74 2.6.2. The Hypothesis: vision and strategy as inputs 75 - 81 2.6.3. The Explanandum: policy outcomes and institutional resilience 82 - 87 2.6.4. The Unit of Analysis: three cases of policy-making 87 - 88 2.6.5. The Sources for data collection 88 - 89 2.7. Conclusion: the methodological challenges of working on a historical figure 89 – 92 i Chapter Three: Nehru, his world view. 3.1. Introduction 93 - 96 3.2. Nehru’s Formative Phase 96 - 113 3.3. Nehru’s Intellectual Context 113 - 117 3.4. The Cognitive Maps of Political Elites 117 - 121 3.4.1. Nehru on Religion and Secularism 121 - 133 3.4.2. Nehru on Economic Development and Socialism 133 - 140 3.4.3. Nehru on Foreign policy and Internationalism 140 - 148 3.4. Conclusion: operationalising a cognitive map 148 - 150 Chapter Four: Contextualising Nehru: his contemporaries and ‘the structure of opportunities’. 4.1. Introduction 151 - 153 4.2. Organisation of the Indian National Congress 153 - 158 4.3. Nehru as Congress President: a content analysis of his presidential addresses. 158 - 171 4.4. Nehru’s Contemporaries 171 - 175 4.4.1. Rajendra Prasad 175 - 180 4.4.2. Subhas Chandra Bose 180 – 188 4.4.3. Vallabhbhai Patel 188 - 192 4.5. Consolidating Power: the struggle for dominance 192 4.5.1. Nehru’s position within the INC: 1947 – 1955 192 - 196 4.5.2. Nehru as political entrepreneur: transforming the Congress-led movement into a political party. 196 - 204 4.6. Conclusion 205 – 206 ii Chapter Five: The Planning Commission 5.1. Introduction: the Puzzle 207 - 212 5.2. Pre-history: the Origins of Planning in India 212 - 222 5.3. The Structure of Opportunities at the time of the Constituent Assembly Debates 223 - 227 5.4. The Planning Commission: an analytic narrative of original intentions, functions and the constraints on institution building 227 - 242 5.5. Vision and Strategy in the framing of the First and Second Five Year Plans 242 5.5.1. The First Five Year Plan: negotiated consensus 242 - 245 5.5.2. The Second Five Year Plan: “the adoption of the socialist pattern of society as the national objective” 245 - 254 5.6. Analyzing the political origins of planning in India 254 - 262 5.7. Conclusion: the Planning Commission as a repository of values 262 - 265 Chapter Six: The Panchasheela Agreement. 6.1. Introduction: the Puzzle 266 - 271 6.2. Pre-history: British India’s foreign policy 272 - 274 6.3. Nehru on foreign affairs: the Constituent Assembly Debates 275 - 276 6.4. The discourse on foreign policy: alternatives to and critics of Nehru 276 - 285 6.5. The Panchasheela Agreement: an analytic narrative of institutions, functions and constraints. 285 - 292 6.6. The Implications of Panchasheela 293 – 295 iii 6.7. Analysing the Origins of the Panchasheela Agreement 296 6.7.1. K.M.Panikkar 296 - 299 6.7.2. T.N.Kaul 299 -301 6.7.3. Krishna Menon 302 - 306 6.8. Conclusion: Vision and Strategy in the Panchaseela Agreement 306 – 310 Chapter Seven: the Hindu Code Bills. 7.1. Introduction: the Puzzle 311 – 315 7.2. Pre-history: Personal Law and Codification under the British 315 – 318 7.3. Secularism and Social Reform in Nehru’s Vision of modern India 318 – 322 7.4. The Discourse on Codification 322 7.4.1 The Constituent Assembly Debates 322 – 330 7.4.2 The Interim Legislative Assembly 330 – 332 7.5. The Structure of Opportunities surrounding the Hindu Code 332 7.5.1 The First Lok Sabha (17 April 1952 – 4 April 1957) 332 – 341 7.5.2. Nehru’s Changing Position 341 – 349 7.6. The Substance and Implications of the Hindu Code 349 – 354 7.8. Conclusion. The Hindu Code legacy: a triumph of strategy over vision? 354 – 358 Chapter 8: Conclusion. 8.1. The shelf life of Nehru’s Institutions: a comparative study of the three policies. 359 - 369 8.2. Methodological individualism and rationality as heuristic devices: Nehru as political actor. 370 – 372 8.3. An analytic narrative of institution formation: vision and strategy in the making of Nehru’s policies. 373 – 376 iv 8.4. Key Findings of the thesis. 377 8.4.1. Path dependence and the origins of institutions 377 8.4.2. Institutional change and development 377 – 380 8.5. Nehru as a case study: leadership, policy-making and the analysis of politics. 380 – 383 Methodoligical Note on Sources 385 Bibliography 385 – 400 Appendix: list of documents 401 – 402 v List of Figures & Tables Figure 1: Model of policy-making Figure 2: Path dependency of policy choices. Figure 3: Organigram of Congress Organisational Structure Figure 4: Organigram of Congress Organisation (based on 1951 Congress Party Constitution) Table 1: Context and Chronology Table 2: Nehru’s Presidential Addresses Table 3: Key Congress Party Resolutions Table 4: Nehru and his contemporaries Table 5: Phases in the process towards planning Table 6: The Changing Structure of Opportunities and Nehru’s Strategy in Foreign Policy. Table 7: The Hindu Code and existing legislation Table 8: The Changing Structure of Opportunities and the Hindu Code Bills. Table 9: The shelf life of Nehru’s Institutions: the Planning Commission, Panchasheela and the Hindu Code Bills. Table 10: The Process behind Nehru’s Policies vi Chapter One The art and craft of policy-making. 1.1. The Problem Stated. 1.2. Research Design. 1.3. Modernisation, political development and political disorder in political science. 1.4. Nehruana literature. 1.5. Conclusion. 1.1. The Problem Stated. This thesis seeks to analyse the art and craft of policy-making. By focusing on Indian Prime Minister, Jawaharlal Nehru, the aim is to take both actor and context seriously. Nehru, who led the country for seventeen years, initially as head of the interim legislature (1947 – 1952) and then winning general elections three times (1952, 1957, 1961), was also leader of the Indian National Congress party in addition to holding other ministerial posts during his prime ministership. Having spent altogether more than nine years imprisoned during the independence struggle1 and anointed as successor to Mahatma Gandhi, Nehru attained a larger than life stature in Indian politics. The impact he had, has been long-lasting and far- reaching. His admirers and critics alike, attribute the resilience of India’s democracy to his 1 On December 6, 1921, Jawaharlal Nehru was arrested for the first time, along with his father, Motilal Nehru. Jawaharlal was briefly released and then re-arrested. Motilal was released in 1922 while Jawaharlal was released on January 31, 1923. Other periods of jail sentence followed: October 19, 1930 – January 1931; December 26, 1931 to August 30, 1933; February 12, 1934 – September 1935; November 1940 – December 1941; August 1942 – June 1945. 1 stewardship during the crucial decades after independence, from the years 1947 to 1964. However, as will be demonstrated the existing literature on Nehru tends to be narrative at best and sycophantic at worst. Furthermore, there is surprisingly little that deals with the 1950s in an analytic and systematic way, a period which would seem to be a crucial phase in the transition from colony to post-colonial state with important implications for the long-run consolidation of India’s modern, democratic institutions. Addressing this gap, the thesis proposes an interpretation based upon a theoretical framework where the individual actor’s choices are set within a specific institutional context. Nehru is the ‘pivotal actor’ given the power he gradually accumulated2 and thus his preferences, world view and ‘vision’ need to be explored in depth and detail. He cannot however, be seen in isolation for both during the formative phase prior to independence and as prime minister, contextual constraints need to be taken into account. This is where the existing literature is again disappointing for there are only scattered examinations of the power politics at the time of independence.3 Nehru’s position of power was by no means guaranteed and translating his preferences into policy required both tactical manoeuvring and bargaining.
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