Chapter 5 Challenges To And Restoration Of The Congress System

Challenge Of Political Succession

Following Prime Minister Jawaharlal Nehru's death in May 1964, after a period of illness, speculation arose regarding succession. However, in newly independent India, this wasn't just about who would succeed Nehru, but what would happen to the country's democratic experiment. Many outsiders doubted India's ability to manage a democratic succession, fearing it could lead to military intervention, similar to other newly independent nations. The 1960s were seen as a ‘dangerous decade’, where unresolved issues like poverty, inequality, communal and regional divisions might jeopardise democracy or even lead to the country's disintegration.

The transition after Nehru's death defied these doubts. Congress President K. Kamraj consulted party leaders and MPs, revealing a consensus in favor of **Lal Bahadur Shastri**. He was unanimously chosen as the Congress parliamentary party leader and became the next Prime Minister. Shastri was a respected, non-controversial leader with prior ministerial experience in Nehru's cabinet. Known for simplicity and principles, he had resigned as Railway Minister taking moral responsibility for an accident. (Source quotes The Guardian editorial comparing successions).

Shastri's brief tenure (1964-1966) was marked by significant challenges: recovering from the economic impact of the 1962 war with China, failed monsoons, drought, and a severe food crisis. Additionally, India faced a war with Pakistan in 1965. Shastri's popular slogan ‘Jai Jawan Jai Kisan’ (Hail the Soldier, Hail the Farmer) symbolised the nation's determination to overcome these challenges.

Shastri's sudden death in Tashkent (then USSR) in January 1966, where he was signing a peace agreement with Pakistan, thrust the Congress into a second succession challenge in two years. This time, the contest was between **Morarji Desai** (former CM of Bombay and Union Minister) and **Indira Gandhi** (Nehru's daughter, former Congress President, and Minister). Senior party leaders backed Indira Gandhi, but the decision wasn't unanimous. Indira Gandhi won the leadership through a secret ballot among Congress MPs, defeating Morarji Desai with over two-thirds support. This peaceful transition, despite intense competition, demonstrated the maturity of India's democracy.

Fourth General Elections, 1967

The year **1967** is a watershed in Indian political history, marking significant changes to the Congress party's dominance, which had prevailed since 1952.

Context Of The Elections

The period leading up to the fourth general elections was marked by grave economic crisis. Successive monsoon failures led to widespread drought, declining agricultural production, and severe food shortages. India also faced depletion of foreign exchange reserves, a drop in industrial production and exports, and a sharp rise in military expenditure following wars. The economic situation was compounded by the quick deaths of two Prime Ministers and the new PM, Indira Gandhi, being perceived as politically inexperienced, having been in office less than a year.

One of Indira Gandhi's early decisions was to **devalue the Indian rupee**, reportedly under pressure from the US. This led to a sharp increase in prices of essential goods, triggering widespread public protests against rising prices, food scarcity, growing unemployment, and the overall economic situation. The government's response, viewing protests as solely law and order issues, further intensified public dissatisfaction.

Communist and socialist parties led struggles for greater equality. A split within the CPI led to the formation of CPI(M-L), which engaged in armed agrarian struggles. This period also saw significant Hindu-Muslim riots.

Non-Congressism

Opposition parties capitalised on the public discontent and the perceived weakness of Indira Gandhi's leadership. Recognizing that divided opposition votes benefited the Congress, disparate parties united to form **anti-Congress fronts** or electoral alliances at the state level, sometimes sharing seats. They aimed to use Indira Gandhi's inexperience and internal Congress factionalism to defeat the ruling party.

Socialist leader **Ram Manohar Lohia** championed this strategy, naming it **‘non-Congressism’**. He argued that Congress rule was undemocratic and harmful to the poor, making it necessary for non-Congress parties to unite to restore democracy.

Electoral Verdict

The fourth general elections to the Lok Sabha and State Assemblies in February 1967 were held amidst heightened popular discontent and political polarisation. The results were a shock to the Congress party.

While Congress retained a majority in the Lok Sabha, its seat tally and vote share were the lowest since 1952. More dramatically, Congress lost its majority in as many as **seven states**, and defections prevented it from forming governments in two others. These nine states were spread across the country. Prominent Congress leaders (political stalwarts) lost elections in their constituencies. (Quote from Neville Maxwell on India's democracy failure).

In Madras State (Tamil Nadu), the regional party **Dravida Munnetra Kazhagam (DMK)** won a clear majority, securing power for the first time after leading an anti-Hindi agitation. In the other eight states where Congress lost majority, **coalition governments** were formed by different non-Congress parties. A popular saying highlighted this shift: one could travel from Delhi to Howrah without passing through a Congress-ruled state. This raised the question: was the era of Congress dominance over?

Coalitions: The 1967 elections marked the rise of coalition politics. With no single party achieving a majority in many states, non-Congress parties formed joint legislative parties (Samyukt Vidhayak Dal - SVD) to form governments. These SVD governments often comprised ideologically diverse parties (e.g., socialists and Jan Sangh together in Bihar). (Cartoon on Charan Singh's attempt at unity).

Defection: Another significant feature post-1967 was the role of defections in state government formation and collapse. Elected representatives left their party to join another, contributing to instability. The term ‘Aya Ram, Gaya Ram’ (Ram came, Ram went) became popular after an MLA in Haryana changed parties thrice in a fortnight, symbolising frequent floor-crossing and political realignments. This practice highlights the fluidity and lack of party discipline in this period. (Story of ‘Aya Ram, Gaya Ram’ details this event).

Split In The Congress

Despite the Congress retaining power at the Centre with a reduced majority after the 1967 elections, the results proved it could be defeated. However, the non-Congress coalition governments in states often proved unstable, leading to President's rule or new combinations.

Indira Vs. The ‘Syndicate’

The primary challenge to Indira Gandhi came not from the opposition but from within her own party – from the **‘syndicate’**, a group of powerful and influential Congress leaders who controlled the party organisation. The Syndicate had supported Indira Gandhi's rise but expected her to follow their guidance. Gradually, Indira Gandhi asserted her independence, relying on trusted advisors outside the party and carefully sidelining the Syndicate members. (Source on The Congress ‘Syndicate’ identifies key members and their role).

Indira Gandhi faced the challenge of building her independence from the Syndicate while also regaining the Congress's lost electoral ground. She adopted a bold strategy, transforming the power struggle into an ideological one by adopting a Left-leaning policy orientation. She pushed for a Ten Point Programme (May 1967) including measures like social control of banks, nationalisation of insurance, urban property ceilings, and land reforms. While the Syndicate formally approved, they had reservations. (Source on Karpoori Thakur and S. Nijalingappa portraits).

Presidential Election, 1969

The factional rivalry between the Syndicate and Indira Gandhi culminated in the **Presidential election of 1969**. Following President Zakir Hussain's death, the Syndicate nominated N. Sanjeeva Reddy as the official Congress candidate, despite Indira Gandhi's preference. Indira Gandhi retaliated by encouraging Vice-President V.V. Giri to contest as an independent. She also announced popular policies like the nationalisation of 14 banks and the abolition of privy purses (special privileges of former princes) (Source on Abolition of Privy Purse).

Differences with Deputy PM and Finance Minister Morarji Desai on these issues led to his departure from government. The rivalry intensified during the election. Congress President S. Nijalingappa issued a whip for Congress MPs to vote for Sanjeeva Reddy. Indira Gandhi's supporters (known as 'requisitionists') called for a special AICC meeting, which was refused. Indira Gandhi openly called for a 'conscience vote'. V.V. Giri won, defeating the official Congress candidate. (Cartoon 'The Left Hook' depicts V.V. Giri's victory over the Syndicate nominee).

V.V. Giri's victory formalised the split in the Congress. The Congress President expelled Indira Gandhi, but she claimed her group was the real Congress. The Syndicate-led group became Congress (Organisation) or Congress (O), and Indira Gandhi's group became Congress (Requisitionists) or Congress (R), also called Old Congress and New Congress. Indira Gandhi portrayed the split as an ideological battle between socialists and conservatives, aligning her faction with the pro-poor stance. (Quote from S Nijalingappa's letter expelling Indira Gandhi).

Abolition of Privy Purse: The special privileges (privy purse) given to former princes after princely state integration (Chapter 1) were seen as inconsistent with equality and justice. Despite initial acceptance for consolidation, Nehru expressed dissatisfaction. Post-1967, Indira Gandhi supported abolishing privy purses, while Morarji Desai opposed it as a 'breach of faith'. The government attempted a constitutional amendment (1970) and an ordinance, but faced opposition. Indira Gandhi made it an election issue in 1971, gaining public support. After her massive victory, the Constitution was amended to abolish privy purses.

The 1971 Election And Restoration Of Congress

The Congress split reduced Indira Gandhi's government to a minority, relying on support from parties like CPI and DMK. She implemented land reform laws and pursued land ceiling legislation to project a socialist image. To gain a popular mandate and end dependence on others, her government dissolved the Lok Sabha in December 1970, a bold move leading to the fifth general elections in February 1971.

The Contest

The 1971 electoral contest seemed challenging for Congress(R). It was a faction of a weakened party, while Congress(O) was believed to have the real organisational strength. Major non-communist, non-Congress opposition parties formed the **Grand Alliance** (SSP, PSP, BJS, Swatantra, BKD). Congress(R) allied with the CPI.

However, Congress(R) had a clear agenda and a positive slogan the Grand Alliance lacked. While the opposition's common programme was ‘Indira Hatao’ (Remove Indira), she countered with the famous slogan **‘Garibi Hatao’** (Remove Poverty). Her program focused on public sector growth, land/property ceilings, reducing disparities, and abolishing princely privileges. Through 'Garibi Hatao,' she aimed to build support among disadvantaged groups (landless labourers, Dalits, Adivasis, minorities, women, youth), a strategy for creating an independent nationwide support base. (Quote on 'Garibi Hatao' and poverty).

The Outcome And After

The 1971 Lok Sabha election results were dramatic. The Congress(R)-CPI alliance won more seats and votes than Congress had ever won in previous elections (375 seats, 48.4% votes). Indira Gandhi's Congress(R) secured 352 seats and 44% votes on its own. Congress(O) won only 16 seats with less than a fourth of Congress(R)'s votes. Indira Gandhi's party established itself as the 'real' Congress, restoring its dominant position. The Grand Alliance failed miserably, winning less than 60 seats combined. (Cartoon 'The Grand Finish' illustrates the outcome).

Immediately after the 1971 Lok Sabha elections, a major crisis erupted in East Pakistan (Bangladesh), leading to the Indo-Pak war and the establishment of Bangladesh (Chapter 4). These events boosted Indira Gandhi's popularity; she was seen as a strong nationalist leader, admired even by opposition leaders. Her party swept the 1972 State Assembly elections, solidifying her position. (Cartoon on new manner of choosing CMs).

With two major election victories (Centre and State), Congress dominance was restored, with the party in power in almost all states and popular across different social sections. Within four years, Indira Gandhi had overcome challenges to her leadership and the Congress's dominant position.

Restoration?

Did this signify a simple restoration of the old Congress system? In many ways, Indira Gandhi had reinvented the party. While it regained popularity comparable to the past, it was a different kind of party. It relied heavily on the popularity of the supreme leader, Indira Gandhi, and had a weaker organisational structure compared to the old Congress.

This new Congress lacked the diverse factions of the past, reducing its capacity to accommodate a wide range of opinions and interests. While electorally successful, its support base relied more on specific social groups: the poor, women, Dalits, Adivasis, and minorities. This marked the emergence of a **new Congress**.

Despite its popularity, the new Congress was less able to absorb tensions and conflicts than the old Congress system. As the Congress consolidated power and Indira Gandhi gained unprecedented political authority, the spaces for democratic expression of people's aspirations actually diminished. Unrest and mobilisation around issues of development and economic deprivation continued to grow, eventually leading to a political crisis that threatened constitutional democracy (explored in the next chapter). (Film 'Zanjeer' is mentioned as portraying the frustration and anger of the times).