Nehru set the pattern for the formation of Indian foreign policy: a strong personal role for the prime minister but a weak institutional structure. Nehru served concurrently as prime minister and minister of external affairs; he made all major foreign policy decisions himself after consulting with his advisers and then entrusted the conduct of international affairs to senior members of the Indian Foreign Service. His successors continued to exercise considerable control over India's international dealings, although they generally appointed separate ministers of external affairs.
India's second prime minister, Lal Bahadur Shastri (1964-66), expanded the Office of Prime Minister (sometimes called the Prime Minister's Secretariat) and enlarged its powers (see The Executive, ch. 8). By the 1970s, the Office of the Prime Minister had become the de facto coordinator and supraministry of the Indian government. The enhanced role of the office strengthened the prime minister's control over foreign policy making at the expense of the Ministry of External Affairs. Advisers in the office provided channels of information and policy recommendations in addition to those offered by the Ministry of External Affairs. A subordinate part of the office--the Research and Analysis Wing--functioned in ways that significantly expanded the information available to the prime minister and his advisers. The Research and Analysis Wing gathered intelligence, provided intelligence analysis to the Office of the Prime Minister, and conducted covert operations abroad.
The prime minister's control and reliance on personal advisers in the Office of the Prime Minister was particularly strong under the tenures of Indira Gandhi (1966-77 and 1980-84) and her son, Rajiv (1984-89), who succeeded her, and weaker during the periods of coalition governments under Morarji Desai (1977-79), Viswanath Pratap (V.P.) Singh (1989-90), Chandra Shekhar (1990-91), and P.V. Narasimha Rao (starting in June 1991). Although observers find it difficult to determine whether the locus of decision-making authority on any particular issue lies with the Ministry of External Affairs, the Council of Ministers, the Office of the Prime Minister, or the prime minister himself, nevertheless in the 1990s India's prime ministers retain their dominance in the conduct of foreign relations.
Data as of September 1995