Book Review: Decoding the power centre

Using memoirs, primary documents, and comparisons with countries like England, Canada, and Australia, Himanshu Roy, in his book PMO: Prime Minister’s Office: Through the Years explores how the PMO’s role has evolved under different prime ministers, shaped by their leadership styles, political circumstances, and the pivotal roles of secretaries and advisors. This review highlights the book’s historical narrative, institutional shifts, and analytical depth, with an expanded focus on Narendra Modi’s tenure due to its contemporary relevance.

Early Foundations and Nehru’s Vision

PMO’s origins trace back to the colonial era as the private secretariat of the Governor-General in 1774, before becoming the Prime Minister’s Secretariat (PMS) under Jawaharlal Nehru in 1947—renamed the PMO in 1977. Nehru saw the PMS as a tool to bolster his leadership, though he clashed with Sardar Patel over its scope. The Principal Private Secretary (PPS), ranked as a joint secretary, had limited formal authority, but Nehru’s dominance in cabinet discussions began shifting power toward this “miniature government.” After Patel’s death in 1950, the PPS started attending cabinet meetings, a move Patel had opposed, setting the stage for the PMO’s growing influence.

Shastri and Indira

The Rise of a Powerhouse Lal Bahadur Shastri elevated the PMO’s chief officer to Secretary to the PM in 1964, aligning its rank with the cabinet secretary and expanding its policymaking role. Secretary LK Jha’s systemic approach—attending cabinet meetings and shaping decisions—marked the PMO’s emergence as a key player. Under Indira Gandhi, the PMO became a “parallel government,” led by PN Haksar, who as principal secretary influenced policy, diplomacy (eg, the 1971 Shimla Agreement), and party affairs. During the Emergency, the PMO overshadowed the cabinet entirely, with the Prime Minister’s House (PMH) and Sanjay Gandhi further centralising power, undermining the parliamentary ethos of collective responsibility.

Rajiv, Rao, and Singh: Adaptation and Challenges

Rajiv Gandhi expanded the PMO with advisors like PC Alexander introduced technology via the National Informatics Centre (NIC), though his intent to restore cabinet autonomy faltered as the PMO grew more interventionist. PV Narasimha Rao’s principal secretary, Amar Nath Varma, used the PMO to drive economic liberalisation, adeptly managing coalition constraints. In contrast, Manmohan Singh’s PMO faced a “dual power structure” with the National Advisory Council (NAC) under Sonia Gandhi, diluting its authority and exposing governance weaknesses amid coalition dynamics and scandals.

Non-Congress Leaders and Coalition Dynamics

Morarji Desai sought to curb the PMO’s overreach in 1977, emphasising cabinet consensus, while the coalition era (1989–2014) saw a subdued PMO under leaders like VP Singh and IK Gujral, reflecting political instability. Atal Bihari Vajpayee, however, centralised power through Brajesh Mishra, whose dual role as Principal Secretary and National Security Advisor bolstered the PMO’s influence in security and foreign policy, defying coalition limitations.

Narendra Modi’s Tenure: A Modern Powerhouse

Narendra Modi’s PMO stands out as a pinnacle of democratic efficiency, reflecting his governance style and the demands of today’s political landscape. Roy dedicates substantial analysis to this period, given its immediacy. Modi’s PMO features a streamlined structure with clear roles for top officials—Principal Secretary, National Security Advisor (NSA), and Principal Advisor—all reporting directly to the PM, creating an “effective center” of decision-making. Policy inputs are delegated to bodies like NITI Aayog, while political work aligns with the party, enhancing operational clarity.

Modi’s PMO features a streamlined structure with clear roles for top officials—Principal Secretary, National Security Advisor (NSA), and Principal Advisor—all reporting directly to the PM, creating an “effective center” of decision-making

Key Officials and Their Roles

Nripendra Misra (2014–2019) and PK Mishra (2019–present), as Principal Secretaries, have been instrumental in executing Modi’s vision, wielding cabinet-level authority. Ajit Doval, as NSA shapes security and foreign policy, leveraging his expertise to align the PMO with national priorities. PK Sinha, as Principal Advisor, focuses on economic and developmental strategies, reinforcing the PMO’s broad mandate.

Modi’s PMO embraces technology as a cornerstone, with initiatives like MyGov and digital platforms enabling direct citizen engagement. Data analytics and real-time monitoring drive flagship programmes such as Digital India, Swachh Bharat, and Ayushman Bharat, often bypassing traditional ministries for swift implementation. Roy notes this technological edge as a defining feature, distinguishing Modi’s PMO from its predecessors.

Described as a “hard taskmaster,” Modi demands accountability and efficiency, fostering a culture of performance within the PMO. His emphasis on merit extends to state governance, encouraging chief ministers to take inspiration from the PMO’s streamlined secretariats. Combined with parliamentary majority and huge popularity, Modi’s PMO stands out as a stark example of an organised and effective administrative body, where the cabinet serves as an indistinguishable deliberative body.

The PMO under Modi coordinates with state governments, promotes best practices, and exerts influence beyond Delhi, reflecting its expanded reach. Roy argues that this efficiency drives progress and negates the risks of getting disconnected from public needs.

England’s cabinet primacy, Canada’s powerful PMO, and Australia’s balanced approach—highlight Bharat’s unique shift toward prime ministerial dominance, fueled by single-party strength and charismatic leadership. Analytically, he ties the PMO’s rise to Congress centralisation, coalition constraints, and economic transitions, critiquing the erosion of collective responsibility. Memoirs from civil servants and politicians enrich this scholarly work, grounding it in real-world experience.

Prime Minister’s Office Through the Years is a standout study, blending history, analysis, and comparative perspectives to reveal the PMO’s pivotal role in Bharatiya governance. With its enlarged focus on Modi’s transformative tenure, Roy’s work offers a timely reflection on power, institutions, and democracy, making it essential reading for understanding Bharat’s political evolution.