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PRESSURE GROUPS AND FORMAL/INFORMAL ASSOCIATIONS AND THEIR

ROLE IN THE POLITY
Revised Value Addition Material

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What is a Pressure Group

A pressure group is an organized group of people that aims to influence public opinion or
policies/actions of government. The pressure group universe includes churches and charities,
businesses and trade associations, trade unions and professional associations, think tanks of
various complexions, and so forth. Although some pressure groups were set up for the specific
purpose of influencing government, many pressure groups exist for other purposes and only
engage in politics as a secondary or associated activity. Pressure groups are organizations that
seek to exert influence on government from outside. They do not therefore put candidates up
for election. In that sense, they are part of civil society. These groups use a number of
methods to achieve their aims including lobbying, research campaigns, media campaigns, policy
briefs and polls.

Pressure groups can therefore act as a channel of communication between the people and
government.

Pressure groups are defined by the following key features:

• They seek to exert influence from outside, rather than to win or exercise government
power.
• Pressure groups do not make policy decisions, but rather try to influence those who do
(the policy-makers). In that sense, they are ‘external’ to government.
• They typically have a narrow issue focus. In some cases, they may focus on a single
issue (for instance opposing a planned road development).
• Their members are united by either a shared belief in a particular cause or a common
set of interests. People with different ideological and party preferences may thus work
happily together as members of the same pressure group.
• Based on certain issues: Each pressure group organises itself keeping in view certain
interests and thus tries to adopt the structure of power in the political systems. In every
government and political party there are clashing interest groups. These groups try to
dominate the political structure and to see that groups whose interests clash with
theirs are suppressed. Thus, each political party and system is pressurised by certain
interest groups which may be similar or reactionary to each other.
• Use of modern as well as traditional means: They try to follow modern means of
exerting pressure, without fully giving up the traditional or old ways of operation. They
adopt techniques like financing of political parties, sponsoring their close candidates at
the time of elections and keeping the bureaucracy also satisfied. Their traditional
means include exploitation of caste, creed and religious feelings to promote their
interests.

Pressure groups and Political parties

Pressure groups and political parties greatly resemble each other. Both of them are channels
through which public can communicate with the government. Prima facie, both of them carry
out representation, facilitate political participation and contribute to the policy process.
However, in reality, groups and parties are very different from each other.

Conventionally, political parties are the bodies which are regarded as providing the way through
which people’s interests are represented in the political system. They also function as a means

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of political communication, since individuals can express their own views to politicians by
becoming members of political parties and can represent their party’s viewpoint to others in
the community.

On the other hand, pressure groups can be seen as providing an additional form of
representation within the political system and an additional channel of political communication.
Some of the differences between Political parties and the pressure groups have been
mentioned below:

Political Party Pressure Group

• Main aim is to attain political power in • Main aim is to influence decision of

government those in political power.
• Directly the control and conduct of • Indirect control over the conduct of
the government. the government
• It can combine heterogeneous interest • It has people with homogenous
to secure majority in the election. interest.

There are several reasons why political parties are often confused with the pressure groups.
Firstly, many small political parties resemble pressure groups in that they have a narrow issue
focus. For example, the British National Party (BNP) is primarily concerned with issues of race
and immigration. The Green Party, despite developing wide-ranging manifestos, places greatest
emphasis on environmental issues such as pollution, economic sustainability and climate
change. Secondly, some pressure groups use elections as a tactical weapon. Any group that
puts candidates up for election is technically a party, not a pressure group. But some pressure
groups use elections as a means of gaining publicity and attracting media attention, with little
or no expectation of winning the election, still less of winning government power.

The relationship between the pressure groups and political parties is also an interesting one.
A pressure group with a close relationship to a political party may work to its advantage. But
this can be harmful at times especially when the opposing party comes to power, the pressure
group’s influence is bound to decrease on policy. National Students Union of India (NSUI)
provides future leadership to the Congress while the Akhil Bharatiya Vidyarthi Parishad (ABVP)
does so for the Bharatiya Janata Party. While some pressure groups are linked to particular
political parties, there are many which have no linkage to any political party.

Types of pressure groups:

There are various ways to classify pressure groups on the basis of their structure and
organization. One of the way has been given below.

i. Interest Groups and Cause Groups

ii. Insider and outsider groups

i. Interest and Cause Groups

The interest/cause classification is based on the purpose of the group in question. It therefore
reflects the nature of the group’s goals, the kinds of people who belong to it, and their
motivation for joining. Interest groups (sometimes called ‘sectional’, ‘protective’ or ‘functional’

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groups) are groups that represent a particular section of society: workers, employers,
consumers, an ethnic or religious group, and so on. Interest groups have the following features:

• They are concerned to protect or advance the interests of their members

• Membership is limited to people in a particular occupation, career or economic position
• Members are motivated by material self-interest

Trade unions, business corporations, trade associations and professional bodies are the prime
examples of this type of group. They are called ‘sectional’ groups because they represent a
particular section of the population. Some of the examples of interest groups are FICCI, CII,
AITUC etc.

Cause groups (sometimes called ‘promotional’, ‘attitude’ or ‘issue’ groups) are groups that are
based on shared attitudes or values, rather than the common interests of its members. The
causes they seek to advance are many and various. They range from charity activities, poverty
reduction, education and the environment, to human rights, transparency in governance etc.

Cause groups have the following features:

• They seek to advance particular ideals or principles

• Membership is open to all
• Members are motivated by moral or altruistic concerns (the betterment of others)

Mazdoor Kisan Shakti Sangathan can be cited as a prime example of a cause group as it seeks to
promote transparency in governance by creating pressure for the introduction of right to
information to citizens. Other examples could be PETA, India against Corruption.

ii. Insiders and Outsiders

The insider/outsider distinction is based on a group’s relationship to government. It therefore

affects both the strategies adopted by a group and its status i.e. whether or not it is considered
‘legitimate’ or ‘established’. Insider groups are groups that are consulted on a regular basis by
government. They operate ‘inside’ the decision-making process. They may also sit on
government policy committees and agencies and have links to parliamentary select
committees. Given all of the above insider pressure groups have a better chance creating an
impact on how the policy shapes up as they are consulted at various stages of policy
formulation. Some of the examples of insider groups are National Advisory Council, CII.

Outsider groups on the other hands are the ones that are not so closely involved with the
decision makers and who find it harder to get their voices heard in the higher echelons of policy
making. They are kept, or choose to remain, at arm’s length from government. They therefore
try to exert influence indirectly via the mass media or through public opinion campaigns. One of
the examples of an outsider group is the association for democratic reforms or ADR which has
been pushing for reforms in the way representatives are elected by the citizens of India.

But at times many groups employ both insider and outsider tactics. This certainly applies in the
case of high-profile insider groups, which recognize that the ability to mount public-opinion and
media campaigns strengthens their hands when it comes to bargaining with government.

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Role/Functions of Pressure Groups

Pressure groups carry out a range of functions. These include:

Representation
Political participation
Education
Policy formulation
Policy implementation

Representation

Pressure groups provide a mouthpiece for groups and interests that are not adequately
represented through the electoral process or by political parties. This occurs, in part, because
groups are concerned with the specific rather than the general. Whereas parties attempt to
broaden their appeal, trying to catch (potentially) all voters, pressure groups can articulate the
views or interests of particular groups and focus on specific causes. Some have even argued
that pressure groups provide an alternative to the formal representative process through what
has been called functional representation.

However, questions have also been raised about the capacity of groups to carry out
representation:

• Groups have a low level of internal democracy, creating the possibility that they
express the views of their leaders and not their members.
• The influence of groups on government does not always reflect their membership size
or their popular support.

Political Participation

Pressure groups have become an increasingly important agent of political participation. Of UK

citizens, 40–50 per cent belong to at least one voluntary association, and a large minority (20
per cent) belong to two or more. Moreover, a range of pressure groups, mainly outsider groups,
seek to exert influence precisely by mobilizing popular support through activities such as
petitions, marches, demonstrations and other forms of political protest. Such forms of political
participation have been particularly attractive to young people.

Education

Much of what the public knows about politics it finds out through pressure groups of one kind
or another. Many pressure groups, indeed, operate largely through their ability to communicate
with the public and raise political consciousness. Groups therefore often devote significant
resources to carrying out research, maintaining websites, commenting on government policy
and using high-profile academics, scientists and even celebrities to get their views across. An
emphasis is therefore placed on cultivating expert authority.

Policy Formulation

Although pressure groups, by definition, are not policy-makers, this does not prevent many
pressure groups from participating in the policy-making process. In particular, pressure groups

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are a vital source of information and advice to governments. Many groups are therefore
regularly consulted in the process of policy formulation, with government policy increasingly
being developed through policy networks. An example of such group is Observor Research
Foundation, which works on policy issues primarily related to Foreign affairs.

Policy Implementation

The role of some pressure groups extends beyond trying to shape the content of public policy
to playing a role in putting policy into practice. Not only do such links further blur the
distinction between groups and government, but they also give the groups in question clear
leverage when it comes to influencing the content of policy. However, questions have also been
raised about the role of groups in implementing policy: Some have criticized such groups for
being over-close to government, and therefore for endangering their independence. Others
have argued that policy implementation gives groups unfair political leverage in influencing
policy decisions.

How Pressure Groups exert Influence

Pressure groups are confronted by a wide range of ‘points of access’. Their choice of targets and
methods, however, depends on two factors. First, how effective is a particular strategy likely to
be? Second, given the group’s aims and resources, which strategies are available?

Pressure groups can exert influence in a variety of ways. These include:

Ministers and civil servants

Parliament
Political parties
Public opinion
Direct action

Ministers and Civil Servants

Ministers and civil servants work at the heart of the ‘core executive’, the network of bodies
headed by the Prime Minister and Cabinet, which develop and make government policy. This is
where power lies. Many groups therefore aspire to get in touch with senior civil servants and
ministers to get some sort of influence over the policies while they are being implemented.

Although such influence may involve formal and informal meetings with ministers, routine
behind-the scenes meetings with civil servants and membership of policy committees may be
the most important way of exerting influence.

Parliament

Groups that cannot gain access to the executive may look to exert influence through
Parliament. In other cases, groups may use parliamentary lobbying to supplement contacts with
ministers and civil servants. Although less can be achieved by influencing Parliament than by
influencing the executive, changes can nevertheless be made to the details of legislation or the
profile of a political issue. This can happen through influence on, for instance, private members’
bills, parliamentary questions (written and oral) and select committee enquiries.

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Political Parties

The most obvious way in which groups influence parties is through funding and donations.

Public Opinion

These strategies are adopted by outsider groups, although high-profile insider groups may also
engage in public-opinion campaigning. The purpose of such strategies is to influence
government indirectly by pushing issues up the political agenda and demonstrating both the
strength of commitment and the level of public support for a particular cause. The hope is that
government will pay attention for fear of suffering electoral consequences. Association for
Democratic Reforms has helped in shaping public opinion to some extent by putting up details
of political representatives of various political parties from each constituency on
www.myneta.info.

Direct Action

Direct action as a political strategy overlaps with some forms of public-opinion campaigning.
However, whereas most political protests take place within the constitutional and legal
framework, being based on established rights of freedom of speech, assembly and movement,
direct action aims to cause disruption or inconvenience. Strikes, blockades, boycotts and sit-ins
are all examples of direct action. Direct action may be violent or non-violent. A non-violent
example of direct action is the protests organized at Ramleela Maidan by India against
Corruption. People’s Movement Against Nuclear Energy protested against the setting up of
Koodankulam nuclear power plant.

Pressure Groups and Lobbying

People often confuse pressure groups with lobbying but both of them are not one and the
same thing. Lobbying takes place when a few members of the pressure groups loiter in the
lobbies of legislatures with a view to securing an opportunity to interact with legislators and to
influence the decision of legislators. Difference cannot be drawn between lobbying and
pressure groups even though lobbyists are representatives of particular interest groups.
Lobbying is a communication process used for persuasion, it cannot be treated as an
organization. Lobbying is different from pressure groups in a sense that pressure groups are
organized groups and lobbying is just one of the functions performed by them.

Global Experience with Lobbying

Many countries see lobbying as an integral part of democratic functioning that allows
individuals and groups to legitimately influence decisions that affect them. No country in the
world, including India, has banned lobbying. In fact, a few countries even regulate the activity,
prominent among these are USA, Canada, Australia, Germany and Taiwan. These countries treat
lobbying as a legitimate right of citizens. Regulations serve as a tool to enhance transparency in
the policymaking process rather than restricting access to policymakers. In fact, that is one of
the key reasons why the UK regulates the lobbied rather than lobbying. The effectiveness of the
law largely depends on how it defines lobbying and lobbyists. In USA lobbying is regulated
under the Lobbying Disclosure Act, 1995. This Act requires lobbyists to register and report
lobbying fees above a certain amount. It also requires companies to report all the lobbying

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expenditure along with the list of issues, lobbyists involved and the public officials and offices
contacted.

Lobbying in India

In India, where there is no law regulating the process, lobbying had traditionally been a tool for
industry bodies and other pressure groups to engage with the government ahead of the
national budget. For decades, organisations such as the Federation of Indian Chambers of
Commerce and Industry and the Confederation of Indian Industry, among others, have worked
hard on behalf of their members to influence key ministries and policies. In recent years, the
need for continuous engagement has increased and so has the sophistication.
Lobbying is arguably one of the most controversial activities in modern democracies. Lobbyists
provide governments with valuable policy-related information and expertise but if the activity
is not transparent, public interest may be put at risk in favour of specific interests. It is easy to
equate lobbying, which is an attempt to influence policy through legal and ethical means, with
corruption in India because a large chunk of the population believes that almost every dealing
with the government requires bribes to be paid to officials. Lobbying is a dirty word in India,
one reason being that lobbying activities were repeatedly identified in the context of
corruption cases. For example, in 2010 , leaked audio transcripts of conversations of an
influential Indian lobbyist, Nira Radia, revealed suspicious dealings between the government
and several business groups , reinforcing public perceptions about lobbying.
In reality, lobbying is not corruption; at least not the western model that is increasingly gaining
traction in India, as an open economy pulls in new rules of engagement from developed
economies. Given that most foreign companies have to follow strict anti-corruption laws in
their own countries, few are keen to come under the lens of their regulators, lose face and pay
fines. The Indian government itself spends millions of dollars every year to influence the U.S.
government and other interest groups there. Ranbaxy paid $90,000 to Patton Boggs to
preserve access to affordable generics. Wipro, like many Indian software firms, lobbied in the
U.S for favourable visa policies. Not only private companies but even Indian government has
been paying a fee every year since 2005 to a US firm to lobby for the Indo-US civilian nuclear
deal. As reported by the Daily Mail in November 2012, Washington-based Barbour Griffith &
Rogers (BGR), hired by the Indian embassy, also used to seek media interviews for Prime
Minister Manmohan Singh and get Congressional resolutions passed in his support ahead of
a US visit.
While lobbying is not a new phenomenon in India, it is largely unregulated. There are no laws
that defined the scope of lobbying, who could undertake it, or the extent of disclosure
necessary. Companies are not mandated to disclose their activities and lobbyists are neither
authorized nor encouraged to reveal the names of clients or public officials they have
contacted. The distinction between lobbying and bribery still remains unclear.

A private member’s Bill to regulate lobbying was recently introduced in the Lok Sabha by
Kalikesh Narayan Singh Deo, which defined the term as “an act of communication with and
payment to a public servant with the aim of influencing” legislation or securing a government
contract. The Bill required lobbyists to register with an authority and declare certain
information. It is not lobbying that is the problem, but the lack of transparency, lack of
comprehensive regulations and lack of mechanisms to monitor the activities of the powerful
that is at the root of the problem. Right to Information Act (RTI) is a good step in this direction.

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Controversy regarding Walmart Lobbying

In 2012, as part of a routine disclosure under U.S. law, Wal-Mart revealed it had spent $25
million since 2008 on lobbying to "enhance market access for investment in India." This
disclosure, which came weeks after the Indian government made a controversial decision to
permit FDI in the country's multi-brand retail sector, created uproar in India. Groups
protesting against FDI in multi-brand retail used Walmart’s disclosure to advocate their case.
The US retailer's lobbying had drawn sharp criticism from the opposition parties, forcing
the Indian government to order an inquiry by a former chief justice of the Punjab and
Haryana high Court Mukul Mudgal but the report of the panel remained inconclusive due to
alleged non-cooperation by Wal-Mart.

But until comprehensive levels of transparency are achieved, legalizing lobbying would mean no
good. Also, regulations need to evolve and documented in an iterative manner before
embarking upon such a move. India needs to determine a regulatory model that suits its socio-
political needs. Furthermore, it should tread a fine line while drafting the disclosure
requirements. Too high disclosure requirements could drive lobbyists underground while too
low penalties may not act as sufficient deterrent for law-breakers.

Views in favour of Lobbying

Proponents of lobbying feel that it is inherent in any democracy, how else should one try and
convince a policy maker of a particular position. Industry chambers such as FICCI and
ASSOCHAM feel that business groups should be entitled to voice their concerns related to a
particular policy matter with the government if they feel their interests may be jeopardised.
They advocate that making lobbying and advocacy legal would lead to a clean way of
approaching the policymakers and lawmakers if they have any legitimate and genuine interests.

Views against Lobbying

Critics argue that corporates or people with mighty socioeconomic power, by themselves or
through their industry bodies, corrupt the laws to serve a self-serving agenda by bending or
deflecting them away from general fairness to majority of the population. It would also be
against the right to equality guaranteed to citizens of the country, as businessmen with
extensive money power can indulge in lobbying and get things done. While common man has
to wait for hours or days to meet his MP/MLA. Thus, those with (financial) resources will win
and those without cash will lose.

Difference between advocacy and lobbying

When non-profit organizations advocate on their own behalf, they seek to positively affect
majority of the society, whereas lobbying refers specifically to advocacy efforts that attempt
to influence policy or legislation of a country by interested groups, irrespective of its best
outcome to the society.

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Are pressure groups becoming more powerful?

Not all debates about pressure-group power focus on the power of individual groups. Others
address the overall power of groups, and whether or not they have generally become more
powerful. Commentators increasingly argue, for instance, that pressure groups have become
more influential in recent years, perhaps even more influential than political parties.

The rise of pressure-group power

Those who argue that pressure groups have become more powerful usually draw attention to
one of three developments:

1. The growth of cause groups. Looked at simply in terms of political participation, groups
certainly appear to be becoming more important. This is best demonstrated by the
growth of cause groups in particular. Some of the reasons cited for increase in the
number of pressure groups are:
i. Increased leisure time, both in terms of the shorter working week and more early
retirement, has increased the number of people with time to devote to such
activities
ii. Higher educational standards have increased the numbers of people with the
organisational skills to contribute to pressure groups.
iii. Changes in gender roles have removed many of the barriers to participation by
women in pressure group activity
iv. Membership of political parties has declined. It has been argued that this reflects
the failure of the political parties adequately to reflect the needs of different groups
of people in society, and that cause groups offer a more promising route for bringing
about political change.
2. The widening of access points through devolution
3. Globalization. Globalization has strengthened pressure groups in a number of ways. In
particular, there is general agreement that business groups have become more
powerful in a global age. This is because they are able more easily to relocate
production and investment, so exerting greater leverage on national governments. Such
trends have strengthened pressures on governments to, for instance, cut business taxes
and reduce corporate regulation. Another feature of globalization has been the
emergence of NGOs, such as the World Development Movement and the World Social
Forum, as major actors on the global stage. Some 2,400 NGOs, for example, took part in
the Earth Summit in Rio de Janeiro in 1992.

The decline of pressure groups

However, not everyone believes that pressure groups have become more important. Some even
talk in terms of the decline in pressure-group power in recent years. Such arguments are usually
based on one of two developments:

1. The end of corporatism. For some, the high point of pressure-group influence came in
the 1970s (Especially in the case of developed countries). This was a period of so-called
tripartite government or corporatism. Economic policy was therefore developed
through a process of routine consultation and group bargaining. However, corporatism
was dismantled in the 1980s and it has never been re-established.

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'Corporatism' refers to the close relationship between the government and economic
interest groups (trade unions and employers' organisations) in decision making on
economic matters.

2. A decline in meaningful and active participation. An alternative explanation of the

decline of pressure groups challenges the idea that recent years have witnessed an
upsurge in group activity. This suggests that while group membership may have
increased, these members have become increasingly passive.

Pressure Groups and Democracy

How do pressure groups promote democracy?

Pressure groups promote democracy in a number of ways. They:

1. Supplement electoral democracy

2. Widen political participation
3. Promote education
4. Ensure competition and debate

Supplementing electoral democracy

Pluralists often highlight the advantages of group representation over representation through
elections and political parties. Pressure groups may either supplement electoral democracy
(making up for its defects and limitations) or they may have replaced political parties as the
main way in which people express their views and interests:

Pressure groups keep government in touch with public opinion between elections.
One of the weaknesses of elections is that they only take place every few years. By
contrast, pressure groups force the government to engage in an ongoing dialogue with
the people, in which the interests or views of the various sections of society cannot be
ignored. IAC’s anti-corruption movement was one such example where the pressure
groups made the government aware of rising sentiment in general public against
corruption in public life. Mazdoor Kisan Shakti Sangathan led the people’s movement
which got the government to bring about the law on ‘Right to Information. ’
Pressure groups give a political voice to minority groups and articulate concerns that
are overlooked by political parties. Elections, at best, determine the general direction
of government policy, with parties being anxious to develop policies that appeal to the
mass of voters. Pressure groups are therefore often more effective in articulating
concerns about issues such as the environment, civil liberties, global poverty, violence
against women and the plight of the elderly. Women’s organizations such as SEWA,
NCW have campaigned for women-friendly laws such as the Protection of Women from
Domestic Violence Act, 2005. In the North-Eastern State of Manipur, many groups
including ‘Just Peace’,Apunba Lup (students’ organization) and Meira Paibis (women’s
groups) are trying to influence the government to listen to people’s genuine grievances.
Together, these groups are associated with Irom Sharmila, a civil rights activist known
as ‘the Iron Lady of Manipur’ who has been on a hunger strike since November 2000.

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Participation

The level of political participation is an important indicator of the health of democracy.

Democracy, at heart, means government by the people. If this is the case, declining electoral
turnout and steadily falling party membership highlights a major ‘democratic deficit’ in politics.
This, however, is very effectively combated by the growth in the number and size of pressure
groups. Pressure groups have become increasingly effective agents of political participation.
Not only has single-issue politics proved to be popular but the grass roots activism and
decentralized organization of many campaigning groups have proved to be attractive to many
young people and those who may be disillusioned with conventional politics.

Education

Pressure groups promote political debate, discussion and argument. In so doing, they create a
better-informed and more educated electorate. This, in turn, helps to improve the quality of
public policy.

Benefits of competition

Pressure groups help to promote democracy by widening the distribution of political power.
They do this, in part, because groups compete against one another. This ensures that no group
or interest can remain dominant permanently.

How do pressure groups threaten democracy?

Some political scientists and politicians have taken the view that pressure groups are non-
democratic, or even anti-democratic, in the sense that they intervene in the political process
based on electoral accountability. Some of them have been listed below:

1. Increase political inequality

2. Exercise non-legitimate power
3. Exert ‘behind the scenes’ influence
4. Lead to the tyranny of the minority

Political Inequality

A central argument against the pluralist image of group politics is that, far from dispersing
power more widely and empowering ordinary citizens, pressure groups tend to empower the
already powerful. They therefore increase, rather than reduce, political inequality. Pluralists
argue that political inequality is broadly democratic, in that the most successful groups tend to
be ones with large membership, and which enjoy wide and possibly intense public support. This
is very difficult to sustain. In practice, the most powerful pressure groups tend to be the ones
that possess money, expertise, institutional leverage and privileged links to government.

Non-legitimate Power

Critics have questioned whether pressure groups exercise rightful or legitimate power in any
circumstances. This is because, unlike conventional politicians, pressure-group leaders have not
been elected. Pressure groups are therefore not publicly accountable, meaning that the

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influence they exert is not democratically legitimate. This problem is compounded by the fact
that very few pressure groups operate on the basis of internal democracy. Leaders are very
rarely elected by their members, and when they are (as in the case of trade unions) this is often
on the basis of very low turnouts. Indeed, there has been a growing trend for pressure groups
to be dominated by a small number of senior professionals. Some pressure-group leaders may,
in fact, be little more than self-appointed political spokespeople.

‘Behind the scenes’ influence

Regardless of which groups are most powerful, pressure-group influence is exerted in a way
that is not subject to scrutiny and public accountability. Pressure groups usually exert influence
‘behind closed doors’. This particularly applies in the case of insider groups, whose
representatives stalk the ‘corridors of power’ unseen by the public and away from media
scrutiny. No one knows (apart from occasional leaks) who said what to whom, or who
influenced whom, and how. This is unaccountable power. Not only does this contrast sharply
with the workings of representative bodies such as Parliament, but it also diminishes
Parliament and undermines parliamentary democracy. Insider links between groups and the
executive bypass Parliament, rendering elected MPs impotent as policy is increasingly made
through deals between government and influential groups that the Parliament does not get to
discuss.

Tyranny of the minority

Pressure groups, by their very nature, represent minorities rather than majorities. For pluralists,
of course, this is one of their strengths. Pressure groups help to prevent a ‘tyranny of the
majority’ that is, perhaps, one of the inevitable features of electoral democracy. However,
pressure groups may create the opposite problem. Minority views or ‘special’ interests may
prevail at the expense of the interests of the majority or the larger public.

Pressure Groups in India

Nature of pressure groups in India

The different types of pressure groups found in India are business groups, trade unions, peasant
groups, student groups, teachers' association, caste and religious associations, women's
associations, etc.

Business Groups

The Business Group is the most important and organised pressure group in India. They are also
most effective. They are independent of the political parties that exist and they have enough
resources with which they can safeguard their interests. Business associations have existed in
India even before Independence. The important business groups include the Confederation of
Indian Industry (CII), Federation of Indian Chambers of Commerce and lndustry (FICCI) and
Associated Chamber of Commerce. They exert varied kinds of pressures, they try to influence
planning, licensing bodies and economic ministries. Some businesspersons are always there in
different legislatures at the Central as well as State level. Every Ministry of the Government of
India has some kind of consultative committee and business groups are represented there.
During pre-budget meetings the Finance Ministry interacts with the groups, to secure suitable

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inputs which helps in budget formulation.

Trade Unions

The Indian Trade union movement has rapidly developed. The trade unions were present prior
to Independence. Under communist influence, the All India Trade Union Congress (AITUC) was
established in 1920s. The emergence of the communist movement also played an important
role in the growth of trade unions in India. In 1948, the Indian National Trade Union Congress
(INTUC) was established.

Trade Unions in India are closely affiliated with the political parties; many national political
parties have got their own federations of trade unions. In fact, no amount of independence
from political parties exists in trade unions. They seem to have been able to exert significant
pressure at the policy formulation level and their strength is well recognised by political parties
and government. The trade unions when required can be very vocal and militant in their actions
to meet their demands. They work through the weapon of strike and have been able to achieve
monetary gains in terms of wage increase, bonus, change in wage structure, etc. These types of
pressure groups have been able to encourage class consciousness and class solidarity among
the workers. We have witnessed over the past few years the trade unions resorting to
demonstrations, during the disinvestment by the government in public sector undertakings
over the past few years. lnspite of certain institutional limitations, such as, ideological
differences, internal splits, external pressures, lack of international backing, the trade unions
exert significant pressure at various levels of policy formulation.

Peasant Organisations

The rise of peasants groups in India has been mainly due to abolition of Zamindari System,
implementation of Panchayati Raj, land reform measures, Green Revolution Movement. They
gained power since 1960s. In 1936, the All India Kisan Sabha was established and after 1942 the
Communist Party of India acquired control over it.

Different parties have got their own peasant organisations. Like the trade unions, there is no
peasant organisation, which may be independent of party control, though at the State level,
their organisations are non-political, independent of the political parties and homogenous. The
agriculturists are mainly organised more in regional or local class unions than on all-India basis.
Even though there are some important All India Kisan Associations like All India Kisan Congress,
All India Kisan Kamgar Sammelan, Akhil Bharatiya Kisan Sangh, peasant groups have been
mainly organised on territorial basis.Their demands relate to procurement prices of agricultural
products, fertiliser subsidy, tenancy rights, electricity charges, etc. The Bharatiya Kisan Party
(BKP) in Western U.P. is considered the most significant pressure group. The interplay of
language, caste factor, weak financial positions, etc. have been greatly responsible for non-
emergence of national level pressure groups.

Student Organisations

The student organisations in India have also acted as pressure groups both prior to
Independence and after Independence. The All Bengal Students Association was formed in
1928. The All India Students Federation (AISF) was established in 1936. After Independence the
political parties continue to be affiliated with student organisations. The All India Students
Congress and later on the National Students Union of India (NSUI) are affiliated to the Congress

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Party. The All India Students Federation and Students Federation of India (SFI) are controlled by
Communist Party of India. The Radical Students Union, Democratic Students Union, Akhil
Bharatiya Vidyarthi Parishad (ABVP) etc. are all affiliated to different political parties. They try to
pressurise governmental policy on various crucial issues, their activities are not just confined to
educational issues. Like the students organisations we also have teachers' associations.

Community Associations

There are various community associations in India. These community groups are organised on
the basis of caste, class and religion. Some examples of caste organisations are Scheduled Caste
Federation, Backward Caste Federation, etc. Amongst other organisations there are some like
Vishwa Hindu Parishad, Northern and Southern India Christian Conference, etc. which represent
interests that are supposed to safeguard their respective religions.

Civil Society Organizations

India has a very large number of Civil Society Organizations (CSOs), that is, organizations
established by citizens of the country, to pursue certain interests. Many of these organizations
act as pressure groups on the government, to promote implementation of policies in their areas
of concerns. These organizations are run by ordinary persons who feel strongly committed to
certain issues. Many ordinary persons come together informally or formally to share their
feelings about different issues and prevailing social injustice. People take up issues of gender
discrimination, child labour, street children and so on, and contribute through individual and
collective action. Such organizations are able to mobilize public opinion because these issues
are relevant to many people in society. Some of the Civil Society Organizations include Mazdoor
Kisan Shakti Sangathan (MKSS, Rajasthan), People’s Union for Civil Liberties (PUCL), National
Alliance of People’s Movements (NAPM), National Alliance of Women’s Organizations (NAWO),
Medico Friends Circle (MFC), and many others. Such organizations put pressure on the
government for changing policies on many important issues such as corruption, human rights,
livelihood of different people, environmental protection, women empowerment, educational
and health issues. All these organizations involve a large number of people who struggle to
bring about changes in State policies. Many of the organizations and groups believe in following
non-violent methods.

Methods of operation of pressure groups in India

The pressure groups adopt different methods to realise their goals. These methods even
include cordial rapport with the political party in power, to resorting to agitational methods.
The pressure groups finance the political parties during the election time and sometimes even
during the non-election times. They control the parties through this funding mechanism. There
have been several debates on election finances but no discussion resulted in regulating or
controlling the flow of finances. Once the parties receive financial support, they cannot oppose
these groups and their interests. On the other hand, they have to promote their interests. It is
believed that several members of the national and state legislative bodies are on the rolls of the
top industrial groups. The pressure groups also maintain close rapport with the State apparatus,
viz., the bureaucratic machinery. The organised pressure groups maintain a wavelength with the
key bureaucrats. The role of rampant corruption needs no mention. The liaison officers are
appointed to take care of the bureaucrats, particularly when they are stubborn. The lobbyists,
middlemen, etc. have acquired enough of skills to manage them. This has also given rise to

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favouritism, corruption and other maladies in bureaucracy. While one cannot find anything
seriously wrong with the pressure groups, it is the methods of operation which have become
controversial. Although all the pressure groups use identical methods, there are some groups
which are far more effective than the others.

The capacity of a pressure group is determined by:

a) Leadership
b) Organisational abilities
c) Mass media
d) Economic power base
e) Mobilisation techniques

Leadership

This is one of the essential components of pressure groups. For it is the leadership which has to
protect the interests of the group. It has to be so projected that in public image it is viewed as a
universal interest. The leadership should also regularly communicate to the political parties,
policy-making agencies and the public. The support of all these three forces is essential. The
leadership should be able to establish credibility and be able to carry public opinion. The
leadership should be, therefore, capable of communicating the viewpoint of their group orally,
in writing and through dialogue. In short the success of leadership lies in universalising the
particular interest.

Organisational Abilities

There is also a need for an organisational network. In a country like India with its size and
magnitude, it becomes essential that there are units of the organisation throughout the
country. These organisations are needed for two reasons: firstly to associate the various facets
of the interest groups and consolidate them and secondly, in a highly diversified society,
communication should take place at multiple points so that rapport with different agencies at
different levels is maintained. The size and organisational strength can always play a significant
role in terms of the response of political system to the demands that the pressure group puts
forward.

Mass Media

In India, the mass media is slowly gaining importance. In countries like United States, it has
come to dominate the socio-political process to such a point that can make the things unmake.
In United States it is completely in private sector. In India, the newspapers are by and large
owned by the major industrial houses. Now the regional newspapers are also becoming
influential. The print as well as the Television in present times through their skills of
communication create powerful public images and through continuous debate and propaganda
influence the public opinion. The political parties and policy-making agencies are sometimes
kept on tenterhooks by the media. In fact during the post-Independent India one issue on
which government had to retreat is the issue of freedom of press. Whenever the bills were
introduced either in the state legislature or union parliament, they had to be withdrawn.
Enough public pressure could be built on this issue. For this is a major weapon in the hands of
the industrial houses or private sector to influence the policy-making process.

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Economic Power Base

The economic power of the interest groups is a crucial factor. The influence a pressure group
commands is proportionate to its economic strength. From financing the elections and party
funds to carrying propaganda, the economic power of the group plays an important role. In
India, the industrial and trading houses have been far more influential and powerful than the
farmers associations, inspite of farmers being spread all over the country. It is clear that without
adequate economic resources the pressure groups cannot exert proper pressure.

Mobilization Techniques

Effectiveness of the pressure groups also depends on their capacity to mobilize the people. The
interest groups not only create public opinion but sometimes draw the general masses into
agitational and protest politics. If they want to set an industry in a particular area, they create
the necessary climate and make the people of the area demand for the industry. If they want
infrastructure facilities they pressurise the government through its network at first and through
a public demand and an agitation, later, if necessary. This is how a major irrigation dam can also
be demanded and realised. In a society where the majority is semi-literate and semiconscious,
private interests can always be converted into public interests.

Limitations of Pressure Groups

• In India, organised groups largely influence the administrative process rather than the
formulation of policy. This is dangerous as a gap is created between policy formulation
and implementation.
• Many a time factors of caste and religion eclipse the socioeconomic interests.
• Many of the groups have a very short life because of the lack of resources.
• In a country like India the tendency to politicise every issue, whether it has social,
economic, cultural import, restricts the scope, working, and effectiveness of pressure
groups. Instead of the pressure groups exerting influence on political process, they
become tools and implements to subserve political interests.

Comparison of Indian and Western Pressure Groups

India and most countries of the West are democracies with either Presidential or Parliamentary
form of government. India, a parliamentary democracy, differs from countries of the West in
terms of development. Therefore, there are some differences in the role of pressure groups.

Firstly, the American pressure groups are regarded as the fourth organ of the government but
the Indian pressure groups are not yet able to play such significant role in politics.

Secondly, in India and Great Britain the cabinet and civil service are the main targets of
pressure groups for lobbying purposes rather than the Parliament. However, the targets of
American pressure groups are the Congress and its committees rather than the President for
lobbying purposes.

Thirdly, Indian pressure groups based on caste, religion, region, etc. are more powerful than
the modern groups like business organisations.

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Fourthly, a significant feature of American pressure groups is that in the USA pressure groups
take interest in foreign policy issues while in India pressure groups do not seem to have interest
in foreign policy matters. Comparatively, the Indian pressure groups are concerned more with
domestic policy issues and problems, and less with foreign policy matters.

However, in general, despite the differences, democratic politics presupposes the crucial role of
pressure groups for serving the interests of different sections of society.

Conclusion:

Pressure groups are now considered as an indispensable and helpful element of the democratic
process. The society has become highly complex and individuals cannot pursue their interests
on their own. They need the support of other fellow beings in order to gain greater bargaining
power. This gives rise to pressure groups based on common interests. For a long time these
groups remained unnoticed. Initially they were considered as harmful for the democratic
process, but now their role in the political process has become very important. Democratic
politics has to be politics through consultation, through negotiation and some amount of
bargaining is also involved. Thus, it is very essential for the government to consult these
organised groups at the time of policy formulation and implementation.

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