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Common minimum programme

The Common Minimum Programme (CMP) is a political document in India that articulates the essential policy priorities, shared objectives, and minimal agenda agreed upon by multiple parties forming a coalition government, particularly when no single party secures an absolute majority in parliament.^[1]^[2] Designed as a pragmatic compromise rather than a exhaustive manifesto, it emphasizes consensus on core governance issues like economic reforms, social welfare, and sectoral development while sidelining contentious ideological differences to ensure governmental stability.^[3] Emerging prominently in the 1990s amid the fragmentation of India's party system and the decline of single-party dominance, the CMP first gained traction during the United Front coalition's brief tenure in 1996, which outlined commitments to social sector development and economic liberalization under constraints.^[4]^[1] It was notably expanded as the National Common Minimum Programme (NCMP) by the United Progressive Alliance (UPA) government in 2004, which prioritized inclusive growth, poverty alleviation through schemes like expanded food security, and infrastructure investments, though implementation faced critiques for fiscal inconsistencies and political compromises.^[2]^[3]^[5] Subsequent coalitions, such as state-level arrangements in Maharashtra in 2019, have adapted the CMP to address regional priorities like agrarian distress and urban development, underscoring its role as a flexible instrument for multiparty governance.^[6] While enabling short-term coalitions to function—evident in policy continuities like labor welfare enhancements under UPA—the approach has drawn scrutiny for potentially diluting bold reforms in favor of incrementalism, reflecting the causal trade-offs of coalition arithmetic over ideological purity.^[7]^[8]

Definition and Conceptual Framework

Origins of the Term

The term "common minimum programme" (CMP) originated in the realm of Indian coalition politics during the mid-1990s, specifically in response to the fragmented mandate of the 1996 Lok Sabha elections. In those elections, held from April 27 to June 7, the Bharatiya Janata Party (BJP) secured 161 seats but could not muster a majority in the 543-member house, leading to its brief 13-day government under Atal Bihari Vajpayee. A loose alliance of 13 regional and left-leaning parties, collectively termed the United Front (UF), then coalesced to form an alternative government, initially led by H. D. Deve Gowda as Prime Minister from June 1, 1996. External support from the Indian National Congress, which held 140 seats, was secured on the condition of excluding the BJP to uphold secular credentials. To reconcile disparate ideologies—ranging from socialist policies of the Janata Dal to communist agendas of the CPI(M)—the UF formalized a CMP as a pragmatic document specifying the bare essentials for governance, avoiding contentious maximalist demands.^[9]^[10] This CMP, drafted in late May 1996 and publicly outlined by June, marked the inaugural national-level application of the concept in post-independence India, emphasizing core principles like strengthening federalism, pursuing economic reforms with a human face (including continued liberalization initiated in 1991 but tempered by employment safeguards), prioritizing agriculture and rural development, and committing to secularism as a foundational value. It explicitly rejected the BJP's Hindutva agenda while promising no rollback of prior privatizations, reflecting a causal compromise driven by the arithmetic of seats rather than ideological purity. The document's brevity—focusing on implementable minima rather than exhaustive platforms—served as a mechanism for accountability, with deviations later criticized as early as September 1996 for undermining fiscal discipline in areas like subsidies and disinvestment.^[11]^[12]^[1] Though sporadic references to "common minimum" frameworks appeared in state-level alliances earlier, such as in Odisha's Jana Congress-Swatantra Party pact in the 1960s, the 1996 UF iteration institutionalized the term at the federal level, setting a precedent for subsequent coalitions like the United Front's second iteration under I. K. Gujral in 1997 and the United Progressive Alliance in 2004. This evolution stemmed from the structural imperatives of India's multi-party system post-1989, where single-party majorities eroded due to the rise of regional parties, necessitating minimal consensus to avert instability.^[13]

Purpose and Mechanisms

The purpose of a Common Minimum Programme (CMP) is to forge a consensus among ideologically diverse coalition partners on core policy priorities, enabling the formation and stability of governments in fragmented parliamentary systems where no single party secures a majority. By outlining minimal shared objectives—typically in areas like economic management, social welfare, and governance reforms—the CMP serves as a pragmatic compromise that defers divisive issues, such as privatization extents or foreign policy nuances, to prevent coalition collapse. This mechanism has proven essential in multi-party democracies like India, where it underpinned governments from 1996 onward by prioritizing immediate actionable agendas over exhaustive ideological platforms.^[14]^[15]^[1] Mechanisms for crafting a CMP begin with negotiations among senior party representatives, who form ad-hoc committees to analyze election manifestos and distill overlapping commitments, often within days of electoral outcomes to expedite government formation. The draft is iteratively refined through bilateral and multilateral consultations to secure buy-in, culminating in a formalized document endorsed by coalition leaders, as occurred with the United Front's 11-point CMP on June 1, 1996, emphasizing fiscal prudence and public sector review. Once adopted, the CMP guides legislative and executive actions via cabinet sub-committees or coordination forums, though it lacks legal enforceability and relies on political goodwill; for instance, the United Progressive Alliance's 2004 CMP integrated inputs from allies like the Dravida Munnetra Kazhagam to balance growth with equity pledges.^[16]^[12]^[17] Implementation mechanisms emphasize selective adherence, with the CMP functioning as a benchmark for policy evaluation rather than a veto instrument, allowing flexibility amid economic pressures—as evidenced by the United Front's partial deviation from its anti-disinvestment stance by mid-1996 to stabilize finances. Monitoring occurs through periodic inter-party reviews or external support pacts, such as the Congress's outside backing of the 1996 coalition, which conditioned aid on CMP fidelity. This structure fosters short-term cohesion but can expose tensions when external shocks demand revisions, underscoring the CMP's role in causal governance dynamics over doctrinal purity.^[12]^[18]^[19]

Distinction from Full Manifestos

A common minimum programme (CMP) represents a negotiated set of policy priorities agreed upon by coalition partners to ensure governmental stability, deliberately restricting its scope to areas of broad consensus while sidestepping deeper ideological divergences that could fracture the alliance.^[20] Unlike a full party manifesto, which articulates a comprehensive vision encompassing economic, social, foreign, and cultural policies aligned with a single party's ideology, a CMP functions as a pragmatic baseline for collective action, often described explicitly as "by no means a comprehensive agenda" but rather a "starting point" for governance.^[20] This limitation arises from the post-electoral context of coalitions, where disparate parties must compromise, as seen in the United Progressive Alliance's 2004 CMP, derived from synthesizing multiple parties' pre-election manifestos without endorsing any one fully.^[14] The CMP's minimalism contrasts sharply with the expansive ambitions of full manifestos, which parties issue before elections to rally voters around transformative goals, such as the Indian National Congress's 2004 manifesto that laid groundwork for but exceeded the subsequent CMP's boundaries.^[21] In practice, CMPs prioritize immediate governance needs—like fiscal prudence or social welfare basics—over long-term ideological overhauls, enabling coalitions like the 1996 United Front to form without resolving core disputes on issues such as economic liberalization. This approach fosters short-term viability but risks diluting policy depth, as coalitions may defer contentious reforms to avoid collapse, a dynamic absent in single-party manifestos that can pursue uncompromised agendas.^[14] Critics, including opposition analyses, have highlighted how CMPs can reflect political opportunism rather than principled policy, blending elements from manifestos selectively to mask internal contradictions, whereas full manifestos demand accountability to a party's electorate on all fronts.^[5] Empirical outcomes in India, such as the UPA's CMP leading to targeted implementations in education spending (aiming for 6% of GDP) without broader structural shifts, underscore this scoped restraint compared to the holistic pledges in standalone manifestos.^[22]

Historical Context in India

Early Instances and United Front Era (1996–1998)

The United Front (UF), a coalition comprising 13 political parties primarily from regional and socialist backgrounds, assumed power on June 1, 1996, following the fragmented results of the 1996 Lok Sabha elections, where no single party secured a majority.^[23] H.D. Deve Gowda of the Janata Dal was sworn in as Prime Minister, leading a minority government reliant on external support from the Congress Party and Left fronts.^[23] To sustain cohesion among diverse partners, the UF adopted a Common Minimum Programme (CMP) as its foundational policy document, marking the first formal instance of such an agreement in post-independence Indian coalition governance.^[23] The CMP delineated a limited set of consensus-driven priorities, avoiding contentious ideological divergences, and served as the explicit basis for the government's initial budget in 1996-97.^[24] Key elements of the 1996 CMP included commitments to economic reforms tempered by social safeguards, such as establishing a divestment commission for transparent privatization decisions, scrutinizing public sector enterprises in non-strategic areas, and prioritizing job security, retraining, and redeployment for affected workers.^[23] It also emphasized agricultural growth through measures like doubling institutional credit to the sector and promoting broad-based rural development.^[24] On federalism, the programme pledged enhanced devolution of financial powers to states, including the formation of a high-level committee within three months to review revenue sharing from sources like customs and corporation taxes, alongside immediate transfer of centrally sponsored schemes—such as anti-poverty initiatives—to state control.^[12] These provisions reflected the UF's regionalist ethos, aiming to counter perceived central overreach while advancing secularism and social justice for marginalized groups.^[23] Implementation faced early hurdles, revealing the CMP's limitations in binding a fractious coalition. By September 1996, deviations emerged on core federalism pledges: no devolution committee was constituted, with the Finance Ministry instead invoking the Tenth Finance Commission's recommendations for a unified tax pool, necessitating constitutional changes that stalled progress.^[12] Similarly, transfers of schemes to states were abandoned amid opposition, leading to retained central funding allocations of Rs 2,466 crore rather than full handover.^[12] Deve Gowda's tenure, ending on April 21, 1997, amid internal UF tensions and Congress pressure, highlighted how ad hoc decisions—such as petroleum price adjustments—often overrode CMP strictures.^[23] Inder Kumar Gujral succeeded Deve Gowda as Prime Minister on April 21, 1997, retaining the UF framework and CMP as the operative agenda, though with continued reliance on Congress support.^[23] Gujral's "doctrine" of non-reciprocal goodwill toward neighbors supplemented domestic priorities but did not alter the CMP's economic or federal focus. The government's instability culminated in March 1998 when Congress withdrew support over corruption allegations against a UF ally, triggering fresh elections and ending the era.^[23] This period established the CMP as a pragmatic tool for coalition survival, yet exposed its vulnerability to partner vetoes and fiscal rigidities, setting precedents for future alliances despite uneven adherence.^[12]

United Progressive Alliance Period (2004–2014)

Following the 2004 Lok Sabha elections, in which the United Progressive Alliance (UPA)—comprising the Indian National Congress and allies such as the Nationalist Congress Party and Dravida Munnetra Kazhagam—secured 218 seats, the coalition formed a minority government under Prime Minister Manmohan Singh on May 22, 2004, with external support from Left parties holding 59 seats, enabling a parliamentary majority.^[25] On May 27, 2004, the UPA adopted the National Common Minimum Programme (NCMP), a consensus document negotiated with Left supporters to outline binding policy priorities amid ideological differences, emphasizing secularism, social equity, and restrained economic liberalization.^[26] The NCMP prioritized accelerating economic growth to 7-8% annually while generating employment, doubling agricultural credit within three years, and avoiding privatization of profit-making public sector units; it committed to social welfare measures including a National Rural Employment Guarantee Act providing 100 days of wage employment per year to rural households, universalization of the Integrated Child Development Services, increasing education expenditure to 6% of GDP, and health outlays to 2-3% of GDP.^[3] Additional pledges encompassed enacting a Right to Information law, legislation against domestic violence, enhanced public distribution system for food security, and initiatives for minorities, Scheduled Castes, and Tribes, such as irrigation programs for their lands and protective farm labor laws.^[3] Foreign policy focused on an independent stance, strengthening regional ties via SAARC, and dialogue with Pakistan, while opposing global unilateralism.^[3] Implementation saw enactment of the Mahatma Gandhi National Rural Employment Guarantee Act on September 7, 2005, fulfilling the core employment promise and covering over 50 million households by 2009, alongside the Right to Information Act in 2005, which empowered citizen access to government records.^[27] The government also expanded mid-day meals, boosted rural credit from ₹1.2 lakh crore in 2004 to ₹3.2 lakh crore by 2007, and pursued administrative reforms, though urban employment guarantees and a comprehensive women's reservation bill remained pending.^[3] Coalition tensions emerged over the Indo-US civilian nuclear agreement, prompting Left parties to withdraw support on July 8, 2008, citing deviations from NCMP commitments on foreign policy independence; the UPA survived a no-confidence motion with backing from the Samajwadi Party, securing 275 votes to 256.^[28] This rift highlighted the NCMP's role as a fragile consensus tool, with Left critiques noting unaddressed promises like organized sector labor reforms and opposition to FDI in retail.^[29] After the 2009 elections, where UPA won 262 seats independently, the second term (UPA-II) dispensed with a formal NCMP, lacking Left involvement and relying on looser alliances with parties like the Trinamool Congress (initially); policy continuity emphasized welfare expansions, such as the National Food Security Act in 2013, but shifted toward Congress-centric initiatives amid growing corruption scandals and economic slowdown, diminishing the CMP model's influence by 2014.^[30]^[31]

Post-2014 Developments and Decline

Following the Bharatiya Janata Party's (BJP) victory in the 2014 Lok Sabha elections, where it secured 282 seats independently, the party formed a single-party majority government without adopting a formal Common Minimum Programme (CMP), instead implementing policies derived from its election manifesto emphasizing economic reforms, governance efficiency, and infrastructure development.^[32] This outcome ended the era of fragmented coalitions that had necessitated CMPs for governance consensus, as seen in prior United Front and United Progressive Alliance administrations.^[1] The BJP's seat tally rose to 303 in the 2019 Lok Sabha elections, reinforcing its ability to govern autonomously within the National Democratic Alliance (NDA) framework, where allied parties provided supplementary support without demanding a binding minimum programme.^[32] Over this decade, the absence of hung parliaments at the national level—contrasting with the 1996–2004 and 2004–2014 periods—diminished the practical utility of CMPs, as the BJP's electoral dominance allowed it to pursue its full agenda, including initiatives like the Goods and Services Tax rollout in 2017 and abrogation of Article 370 in 2019, without coalition vetoes.^[33] In the 2024 Lok Sabha elections, the BJP won 240 seats, requiring reliance on NDA allies to reach a total of 293 seats and form the government.^[32]^[33] However, no formal CMP was negotiated or adopted; coalition discussions focused instead on bilateral deals, such as cabinet positions for allies like the Telugu Desam Party and Janata Dal (United, additional funds for states like Andhra Pradesh and Bihar, and assurances on regional demands, reflecting the BJP's continued agenda-setting role rather than a diluted consensus document.^[34] This pattern underscores the decline of CMPs in Indian national politics post-2014, as single-party or BJP-led majorities have prioritized manifesto-driven governance over compromise-driven minimalism, rendering the mechanism largely vestigial amid reduced coalition fragility.^[1]^[34] Occasional calls for CMPs, such as from opposition alliances like INDIA in 2023, have not translated into governing practice under NDA rule.^[1]

Application in Nepal

Emergence in Nepalese Politics

The Common Minimum Programme (CMP) emerged in Nepalese politics as a formalized mechanism for coalition governance during the post-conflict transition following the Comprehensive Peace Accord (CPA) signed on November 21, 2006, between the Seven-Party Alliance and the Communist Party of Nepal (Maoist). Article 43 of the CPA stipulated that "the common minimum programme prepared through mutual agreement shall be the basis of the policies of the Government of Nepal," establishing the CMP as a consensus-driven policy foundation to bridge ideological divides among former combatants and democratic parties in the interim setup.^[35] This innovation addressed the challenges of fragmented parliamentary representation in Nepal's proportional system, where single-party majorities were rare, by prioritizing minimal shared commitments over comprehensive ideological alignment.^[36] The CMP's practical debut occurred with the eight-party alliance's adoption of such a programme during negotiations for the interim government, sworn in on April 1, 2007, under Prime Minister Girija Prasad Koirala, which integrated Maoist representatives and focused on peace implementation, constituent assembly elections, and federal restructuring.^[36] This marked a departure from pre-2006 coalition practices, which, despite Nepal's multiparty democracy since 1990 and frequent hung parliaments (e.g., the 1994–1997 minority governments), relied more on ad hoc alliances without codified minimal programmes.^[37] The CMP thus institutionalized coalition stability amid the abolition of the monarchy in May 2008 and the shift to a federal republic, influencing subsequent governments by embedding mutual policy baselines in power-sharing deals.^[38] Although influenced by similar Indian coalition tools from the 1990s United Front era, Nepal's CMP adapted to its unique context of insurgency resolution and ethnic federalism demands, evolving into a staple for sustaining governments through the 2008 Constituent Assembly elections and beyond, where no party exceeded 40% of seats.^[39] Early CMPs emphasized immediate priorities like disarmament, transitional justice, and economic stabilization, reflecting causal necessities of post-war consensus rather than expansive reforms.^[40]

Key Coalition Examples (2000s–2020s)

In the transitional period following the 2006 Comprehensive Peace Agreement, the Nepali government and the Communist Party of Nepal (Maoist) agreed to implement a minimum common program focused on economic and social transformation to eradicate feudalism, forming the basis for subsequent coalition governance frameworks.^[41] After the 2008 Constituent Assembly elections, a coalition government led by Pushpa Kamal Dahal of the CPN (Maoist)—including the CPN-Unified Marxist-Leninist (UML), Madhesi Janadhikar Forum, Jan Morcha, and Nepal Sadbhavana Party—pursued shared priorities in post-conflict reconstruction and republican transition, effectively operating under coalition-agreed minimum commitments despite the absence of a formalized document at the time.^[42]^[43] In the 2020s, explicit common minimum programmes (CMPs) became standard for stabilizing coalitions amid frequent government changes post-2022 local elections. The April 2023 coalition under Dahal (CPN-Maoist Centre with UML support) unveiled a 13-page CMP prioritizing transitional justice completion within two years, economic relief measures, and infrastructure development, though critics noted its repetition of unfulfilled prior pledges.^[44]^[45] A March 2024 five-party coalition, incorporating major parties like the Nepali Congress (NC), UML, and Maoist Centre, released a CMP emphasizing independent foreign policy, national sovereignty, and balanced relations with neighbors, presented at the Prime Minister's Office to guide policy amid geopolitical pressures.^[46] The July 2024 NC-UML alliance, with K.P. Sharma Oli resuming as Prime Minister, formed a task force in September to draft a CMP reaffirming cross-party deals on stability and development, though implementation faced delays and public criticism for inadequate response to economic discontent.^[47]^[48]^[49]

Policy Content and Implementation

Typical Areas of Focus

Common minimum programmes in coalition governments of India and Nepal typically emphasize consensus-driven policies in economic development, social welfare, and governance, deliberately sidelining ideologically divisive issues such as radical privatization or cultural reforms to sustain coalition stability.^[1] In India, the United Front's 1996 programme prioritized economic reforms with safeguards for public sector enterprises, social justice measures including empowerment of marginalized communities, and secular governance principles.^[50] ^[1] Key focal areas often include agriculture and rural infrastructure, with commitments to increase investment, credit, and technology in farming sectors like horticulture and irrigation to boost productivity and farmer incomes.^[3] ^[51] For instance, the United Progressive Alliance's 2004 programme allocated highest priority to agricultural growth alongside rural electrification and road networks.^[3] Employment generation and poverty alleviation feature prominently, through schemes like rural employment guarantees and strengthened public distribution systems targeting backward regions.^[5] ^[3] Social sector priorities encompass education, healthcare, and equity for vulnerable groups, including women and minorities, with policies aimed at universal access and performance-based incentives for service providers.^[52] ^[45] In Nepal, recent coalitions have highlighted corruption control, citizenship reforms, and equitable social systems alongside health and education enhancements.^[53] ^[54] Governance and security elements address federalism, national integrity, and basic foreign policy continuity, such as independent diplomacy in Nepal's programmes or internal security in India's.^[46] ^[5] Infrastructure development, including energy and transport, serves as a unifying theme to drive equitable growth without alienating coalition partners.^[5] These areas reflect pragmatic compromises, focusing on measurable outcomes like credit expansion for rural economies rather than comprehensive ideological overhauls.^[11]

Achievements in Specific Sectors

The National Common Minimum Programme (NCMP) of the United Progressive Alliance (UPA) government (2004–2014) facilitated the enactment of the Mahatma Gandhi National Rural Employment Guarantee Act (MGNREGA) in 2005, which guaranteed 100 days of wage employment per year to every rural household willing to undertake manual labor, aiming to enhance rural livelihoods and reduce poverty.^[55] By 2014, MGNREGA had generated over 2.5 billion person-days of work annually, contributing to improved rural infrastructure such as water conservation and roads, though with varying efficacy across states due to implementation challenges.^[55] In governance and transparency, the NCMP's emphasis on accountability led to the Right to Information Act (RTI) in 2005, empowering citizens to request government records and fostering greater public oversight of administrative processes.^[2] The RTI enabled millions of information requests yearly by the late 2000s, exposing irregularities in sectors like public distribution and procurement, thereby strengthening anti-corruption mechanisms despite resistance from bureaucratic entities.^[2] Education sector advancements under the NCMP included expanded funding for primary schooling through initiatives like Sarva Shiksha Abhiyan, which increased enrollment rates from approximately 95% in 2004 to near-universal levels by 2010, alongside the Right to Education Act in 2009 mandating free and compulsory education for children aged 6–14.^[56] Health spending rose modestly toward the NCMP's target of 2–3% of GDP, supporting programs that improved immunization coverage and maternal health metrics, though shortfalls persisted relative to promises.^[57] The United Front's Common Minimum Programme (1996–1998) supported continuity of post-1991 economic liberalization in infrastructure and high-tech sectors, attracting foreign direct investment that averaged $2.2 billion annually during the period, aiding stabilization after fiscal strains.^[58] Limited tenure constrained broader sectoral gains, but federal fiscal transfers were enhanced, bolstering state-level agricultural subsidies and rural credit access.^[24] In Nepal, coalition common minimum programmes in the 2000s–2010s prioritized post-conflict reconstruction, yielding achievements in infrastructure like the expansion of rural roads under 2008–2013 coalitions, connecting over 10,000 km of previously isolated areas and facilitating trade growth by 15–20% in remote districts.^[45] Transitional justice efforts advanced modestly, with commissions addressing conflict-era abuses, though implementation lagged behind programme commitments.^[59]

Shortcomings in Execution

The execution of Common Minimum Programmes (CMPs) in coalition settings has often been undermined by inherent compromises that prioritize political survival over substantive policy delivery, leading to partial implementations, dilutions, and outright failures. In India, the United Front government's 1996 CMP, which emphasized fiscal prudence and public sector reforms, faltered amid rapid leadership transitions—three prime ministers in under two years—and escalating deficits, with the fiscal deficit reaching 6.3% of GDP by 1997-98, exacerbating economic instability and culminating in government collapse.^[50] Similarly, the United Progressive Alliance's (UPA) National Common Minimum Programme (NCMP) from 2004 promised equitable growth and social welfare, yet execution lagged in rural employment schemes like MGNREGA, where initial coverage expanded but corruption scandals and implementation inefficiencies reduced effectiveness, with only 40-50% of funds reaching intended beneficiaries in early years per audits.^[60]^[61] A key execution shortfall in the UPA era involved ideological divergences overriding CMP commitments, as seen in the 2008 Indo-US civil nuclear agreement, which prompted left allies' withdrawal of support on grounds that it breached the NCMP's stance against strategic alignments with the US, destabilizing the coalition and contributing to policy paralysis in its second term (2009-2014), marked by slowed GDP growth from 8.5% in 2007-08 to 5.5% by 2012-13.^[62] These lapses reflect causal realities of coalition dynamics, where veto power among partners delays reforms and fosters opportunism, contrasting with more streamlined execution under majority governments. In Nepal, CMP execution has been chronically impeded by alliance fragility and mistrust, resulting in unfulfilled agendas despite formal agreements. The 2002 United Revolutionary People's Council CMP's 43-point platform, focusing on land reform and economic equity, saw minimal progress due to internal regressions and failure to curb insurgent influences, as internal party reviews later admitted.^[63] Post-2006, coalitions under the Comprehensive Peace Accord struggled with CMP-like pacts, such as the 2010 failure to enact a common minimum program for land redistribution amid elite capture, perpetuating agrarian inequities and contributing to repeated government topples—Nepal averaged 1.2 prime ministerial changes per year from 2008-2018.^[64]^[65] Recent Nepalese examples amplify these issues: the 2021 NC-Maoist CMP vaguely addressed foreign policy but delivered scant tangible outcomes, criticized for ignoring unfavorable treaties while advancing little in infrastructure or fiscal discipline, with capital expenditure execution hovering below 70% annually.^[66] The 2024 Nepali Congress-UML coalition's CMP, delayed in presentation, promised stability but yielded "common minimum performance" at best, with critics noting overlooked public grievances on corruption and development within its initial 100 days, underscoring persistent shortfalls in enforceable timelines and monitoring.^[47]^[67] Broadly, CMPs' execution deficits arise from absent binding mechanisms, enabling parties to renege without repercussions, as Nepal's public financial management reports document recurrent under-execution of budgeted capital outlays due to political bargaining.^[68] This pattern reveals a structural causal flaw: consensus-driven agendas inherently sacrifice depth for breadth, yielding governance inefficiencies verifiable in both nations' histories of coalition-induced volatility.

Criticisms and Analytical Perspectives

Accusations of Opportunism and Compromise

Critics of common minimum programmes (CMPs) argue that they incentivize opportunism by allowing disparate political parties to prioritize short-term power-sharing over ideological consistency, often resulting in diluted policy commitments that serve coalition stability rather than principled governance.^[69] This perspective holds that CMPs, as minimal agreements, encourage parties to form alliances of convenience, sidelining core doctrines to exclude rivals or retain office, which undermines voter mandates and fosters instability.^[70] In India, the 1996 United Front coalition's CMP exemplified such accusations, uniting ideologically varied groups including the socialist Janata Dal and communists primarily to block Congress and BJP dominance, but the government collapsed within 13 months amid internal contradictions and charges of opportunistic horse-trading.^[71] Similarly, the United Progressive Alliance's (UPA) 2004 CMP faced BJP criticism as a "confused document of political opportunism," blending vague promises on economic reforms with socialist rhetoric to accommodate Left support, despite underlying tensions over market liberalization.^[5] The Left Front's withdrawal of support in July 2008 over the Indo-US nuclear deal further underscored these claims, with observers noting the UPA-Left pact as inherently opportunistic, stitched together without genuine ideological alignment and prone to breakdown when core interests clashed.^[72] In Nepal, CMPs in post-2006 coalitions involving Maoists drew parallel rebukes for compelling revolutionary factions to compromise radical land reform and federalist demands for incremental governance, leading to intra-party splits like the 2012 formation of the Communist Party of Nepal-Maoist, which criticized mainstream Maoist leaders for diluting ideology in power-sharing pacts.^[73] Hardline critics within leftist circles accused these arrangements of enabling opportunism, as parties traded transformative agendas for ministerial positions, resulting in stalled constitutional processes and repeated government reshuffles between 2008 and 2015.^[74] Analysts contend that while CMPs mitigate deadlock in hung parliaments, their emphasis on bare-minimum consensus often perpetuates a cycle of compromise-driven instability, where parties defect or renegotiate terms for personal or factional gain, eroding public trust in democratic institutions.^[16] Empirical patterns in Indian coalitions from 1989 to 2014 show higher rates of mid-term collapses in CMP-based governments compared to majority rule, attributed to opportunistic realignments rather than policy failures alone.^[70]

Impact on Governance Efficiency

Coalition governments guided by a Common Minimum Programme (CMP) frequently encounter governance inefficiencies stemming from the imperative to secure consensus among ideologically disparate partners, which prolongs decision-making and restricts ambitious reforms to only non-divisive elements. This lowest-common-denominator approach, while stabilizing short-term coalitions, often results in policy inertia, as evidenced in India's coalition eras post-1989, where fragmented mandates under CMP-like agreements correlated with slower legislative progress and delayed executive actions compared to single-party majorities. For instance, during the United Progressive Alliance's tenure (2004–2014), initial CMP commitments to social welfare expanded welfare spending but later devolved into hesitation on structural economic adjustments, such as goods and services tax implementation, due to partner vetoes and risk aversion.^[75]^[16] In Nepal, the recurrent use of CMPs in post-2006 multiparty coalitions has exacerbated administrative fragmentation, with governments averaging less than two years in office amid frequent realignments, undermining consistent policy execution in critical areas like infrastructure and federal resource allocation. Empirical data from Nepal's political transitions indicate that CMP-bound coalitions, such as the 2021 Deuba-Oli alliance, prioritized immediate crisis responses over long-term fiscal consolidation, leading to repeated budget shortfalls and stalled federalism reforms as provinces vied for central funds without unified directives. This pattern fosters a cycle of reactive governance, where the narrow CMP scope defers contentious but essential decisions—such as land reforms or anti-corruption enforcement—resulting in measurable declines in public service delivery metrics, including delayed project timelines reported by oversight bodies.^[76]^[77] Critics, drawing from comparative political economy analyses, argue that CMPs inherently prioritize coalition survival over efficacy, as evidenced by higher veto points in decision processes that correlate with reduced reform velocity; in both Indian and Nepalese contexts, this has manifested in elevated transaction costs for governance, including prolonged parliamentary debates and judicial interventions in policy vacuums. While proponents claim CMPs enhance inclusivity, quantitative assessments of coalition performance reveal lags in key indicators like GDP growth attribution and infrastructure completion rates relative to majority-rule benchmarks, underscoring a causal link between constrained agendas and suboptimal outcomes.^[78]^[79]

Comparative Effectiveness Versus Majority Rule

Coalition governments operating under a common minimum programme (CMP) facilitate power-sharing in fragmented legislatures where no single party secures a majority, as frequently occurs in Nepal's proportional representation system. However, empirical analyses indicate that such arrangements often yield lower governance effectiveness compared to single-party majority rule, primarily due to prolonged negotiations, policy dilution, and heightened instability. For instance, studies across parliamentary democracies show that coalition governments exhibit reduced policy-making productivity, with agreements constraining bold reforms and leading to incremental rather than transformative changes.^[80] In Nepal, post-1990 elections have rarely produced single-party majorities, resulting in coalitions that average shorter tenures—often collapsing within 1-2 years amid partner disputes—compared to periods of relative stability under dominant-party rule, such as the Nepal Communist Party's near-majority government from 2018 to 2021.^[81]^[82] Economic performance further underscores this disparity. Cross-national evidence reveals that single-party governments correlate with stronger fiscal discipline and higher growth rates, as they avoid the veto points inherent in coalition bargaining; coalition regimes, by contrast, tend to incur larger budget deficits and slower expenditure control, with public spending rising due to distributive compromises.^[83]^[84] In Nepal, CMP-based coalitions, such as the 2023 10-party alliance, have prioritized consensus-driven agendas like federalism implementation but struggled with execution, evidenced by stalled infrastructure projects and delayed reforms amid frequent reshuffles—contrasting with more decisive advances in road and hydropower development under majority-leaning administrations.^[85]^[86] While CMPs mitigate deadlock by focusing on minimal shared goals, their restrictive scope limits comprehensive policy innovation, fostering perceptions of ineffectiveness; single-party majorities, though risking over-centralization, enable clearer accountability and sustained implementation, as voters can directly attribute outcomes to one entity.^[87] Critics of CMP coalitions argue that their emphasis on compromise erodes decisiveness, particularly in developing economies requiring rapid structural adjustments, where majority rule has empirically outperformed in fostering growth and stability.^[88] Nepal's experience aligns with this, as coalition volatility—exemplified by over a dozen government changes since 2008—has impeded long-term planning, whereas stable majorities have correlated with incremental gains in governance metrics like the BTI Transformation Index scores during unified rule periods.^[89] Nonetheless, in highly diverse polities like Nepal, CMPs provide a mechanism for inclusion, potentially averting exclusionary policies under unchecked majorities, though data prioritizes effectiveness metrics favoring the latter for tangible developmental impacts.^[90]

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India's new government sets agenda - UPI Archives
India's new government sets agenda. May 29, 1996 ... 'I do not find any problems in finalizing the common minimum program,' he told reporters after the meeting.
[11]
A United Front : India's New Ruling Party Eager for More Foreign ...
Jun 6, 1996 · The ruling United Front's “common minimum program” seeks an even greater role for foreign investment in kick-starting India's economy, and pins ...Missing: history programme
[12]
United Front government deviates from its Common Minimum ...
Sep 15, 1996 · The United Front (UF) government has already deviated from its much-touted Common Minimum Programme (CMP) on two specific and vitally important ...
[13]
[PDF] Harekrushna Mahtab - Internet Archive
Jan 2, 1987 · common minimum programme, the Jana Congress forged a programmatic alliance with the Orissa unit of the Swatantra Party, hitherto known as Ganatantra ...
[14]
Assessing the Efficacy of Coalition Governments: Can They Work?
The party introduced the common minimum programme (CMP), which was created after studying all the parties' manifestos. The CMP was also essential in ...
[15]
Introduction | FORGING POWER: Coalition Politics in India
On the basis of a common minimum programme, the regional parties cemented a political bond to electorally defeat the Congress and its allies. The common agenda ...
[16]
Coalition Government in India: Meaning, Mechanism, Challenges ...
Oct 16, 2025 · Multi-party participation: It involves more than one political party sharing power. Common minimum programme: Coalition partners usually draft a ...<|separator|>
[17]
What explains policy change? Understanding the historical political ...
Jan 5, 2024 · The UPA created two institutional mechanisms to make the coalition inclusive and effective: The Common Minimum Programme (CMP) and the National ...
[18]
[PDF] Divided We Govern - Coalition Politics in Modern India
The Formation of the United Front (May 1996). 8. Establishing Political ... and draft its common minimum programme but refused government participation.
[19]
Middle Game in Coalition Politics - jstor
Common Minimum Programme. At the first tier of the UF management mechanism was a programme spelling out its goals. This common minimum programme (CMP) ...
[20]
National Common Minimum Programme of United Progressive ...
This is a common minimum programme (CMP) for the UPA government. It is, by no means, a comprehensive agenda. It is a starting point that highlights the main ...
[21]
Congress manifesto | India News
Mar 24, 2009 · The manifesto of the Indian National Congress for the 2004 Lok Sabha elections provided the foundation for the National Common Minimum Programme ...
[22]
[PDF] Keep Your Promises: Campaigning to hold government to account ...
the national 'Common Minimum Programme', or CMP. These promises included raising expenditure on education from 3 to 6 per cent of gross domestic product ...Missing: distinction | Show results with:distinction
[23]
What is a CMP? Find out! - Rediff.com
May 18, 2004 · The CMP was even integrated in the Deve Gowda government's first full Budget for 1996-1997. Salient points of the 1996 CMP? It called for ...
[24]
[PDF] 1996-97 Regular(p1-24).pmd - India Budget
Jul 27, 1996 · The Common Minimum Programme lays emphasis on broad-based agricultural development and calls for a doubling of the flow of credit to ...<|separator|>
[25]
Partywise Seats Distributions 2004 All State - IndiaVotes
PC: Alliances All States 2004. All States. Alliance, Seats, Votes %, Contested Voteshare. UPA, 225, 36.5, 36.8. NDA, 189, 35.9, 35.9. THIRD FRONT, 55, 7.2, 37.4 ...
[26]
The Common Minimum Programme: the complete document
May 27, 2004 · To fully empower women politically, educationally, economically and legally. To provide for full equality of opportunity, particularly in ...
[27]
The UPA Years (2004 — 2014) - UPSC PDF Download - EduRev
Rating 4.8 (612) Some key achievements include the implementation of the National Rural Employment Guarantee Act (NREGA), the Right to Information Act (RTI), and the launch of ...
[28]
Left withdraws support, but govt sanguine - Mint
Jul 8, 2008 · India's Left Front, which supports the ruling Congress-led United Progressive Alliance (UPA) government without being part of it, withdrew support Tuesday ...
[29]
One-Year of UPA Government - Communist Party Of India (Marxist)
Aug 8, 2009 · The UPA adopted a Common Minimum Programme. The CPI(M) and the Congress have basic differences on policy matters stemming from our differing ...
[30]
UPA II story: Desperatly seeking Congress - Deccan Herald
Unlike the arrangement worked out at the beginning of UPA-I in 2004, the second UPA has no common minimum programme. Nor is there a coordination panel for ...
[31]
United Progressive Alliance | India, Government, & Congress Party
Oct 3, 2025 · From 2004 to 2014 it was the core of the ruling coalition under Prime Minister Manmohan Singh. The centre-left alliance was formed following the ...
[32]
From 2014-2024 – 282, 303, 240: Charting shift in BJP's tally
Jun 5, 2024 · BJP improved to 303 seats in 2019, but has won 240 seats in 2024, when the majority mark is 272. How has this shift happened?
[33]
IndiaVotes | India's largest election database
Seats, Votes %, Contested Voteshare. NDA, 292, 43.6, 44.3. INDIA, 230, 36.7, 37.2. Alliances Partywise Details. Election Data. PC Elections (Lok Sabha). Year ...
[34]
For NDA, no common minimum programme or convener on the table ...
Jul 13, 2024 · There is no talk of a common minimum programme on the table yet. Nor is there a clear move towards the appointment of an NDA convener as of now.
[35]
[PDF] NEPAL'S ELECTION AND BEYOND - Asia Report N°149
Apr 2, 2008 · The common minimum programme prepared through mutual agreement shall be the basis of the policies of the Government of Nepal”, CPA, Art. 43 ...
[36]
[PDF] S/2007/235 - Security Council Report
Apr 26, 2007 · As part of their negotiations leading to the formation of the interim. Government on 1 April 2007, the eight parties adopted a common minimum.
[37]
Nepal's Experiment with Democracy - A Game of Shifting Alliances
Oct 23, 2017 · ... common minimum programme before the electorate? Both sides have similar challenges and both have to work on a war-footing to device their ...
[38]
The perennial significance of Nepal - Gateway House
... common minimum programme, including an understanding to create a separate force from among the PLA combatants. However, this arrangement began to unravel ...
[39]
https://www.idsa.in/system/files/monograph/monograph72.pdf
[40]
Nepal's Civil War & Peace Process - Appeal of the Communist Party ...
The interim government must be run according to the principle of consensus and the common minimum programme, in stead of being run on the old way of single ...
[41]
[PDF] Comprehensive Peace Accord Signed between Nepal Government ...
To gradually implement by deciding through mutual agreement a minimum common program for the economic and social transformation to end all forms of feudalism.
[42]
Maoist Leader Sworn In as PM of Nepal - S&P Global
Aug 19, 2008 · The coalition partners have drawn up a common minimum programme that includes measures to consolidate the peace process that has been under way ...<|control11|><|separator|>
[43]
New Maoist-led government installed in Nepal - WSWS
Sep 2, 2008 · The CPN-M's coalition partners are the Communist Party of Nepal-Unified Marxist Leninist (CPN-UML) and the ethnic-based Madhesi Peoples Right ...<|separator|>
[44]
Common Minimum Program of government made public - Nepal News
Apr 7, 2023 · The ruling coalition has unveiled its common minimum program along with its priorities, including among others to immediately complete the ...
[45]
Common programme repeats government's past promises
Apr 7, 2023 · The Pushpa Kamal Dahal-led government on Thursday brought a new Common Minimum Programme (CMP), its second in three months, copying most points from earlier ...
[46]
Nepal's new five-party coalition govt unveils common minimum ...
Mar 20, 2024 · The coalition's common minimum programme was unveiled at the Office of the Prime Minister and Council of Ministers in Singha Durbar, in the ...Missing: examples 2000s
[47]
Common minimum performance | Nepali Times
Sep 20, 2024 · A task force of the UML-NC coalition presented its Common Minimum Program (CMP) to Prime Minister K P Oli on Wednesday, reaffirming the deal ...
[48]
Nepal's New Coalition Government Explained - The Wire
Jul 16, 2024 · As far as other issues are concerned, the two parties are yet to form a Common Minimum Program. What will their foreign policy look like ...
[49]
NC, UML form task force to prepare govt's common minimum program
Sep 9, 2024 · KATHMANDU: The ruling coalition partners are working on forming a Common Minimum Program (CMP) for the government.
[50]
A Brief Outline of a Critique of the Common Minimum Programme in ...
Jul 5, 2004 · The highlights of the Common Minimum Programme of the United Front Government in 1996 were as follows: To carefully examine the public sector ...
[51]
Text of draft of Common Minimum Programme - Rediff
May 22, 2004 · The UPA will give special attention to augmenting and modernising rural infrastructure consisting of roads, irrigation, electrification, cold ...
[52]
Text of the CMP | India News - Times of India
May 27, 2004 · Special schemes to reach foodgrains to the most destitute and infirm will be launched. Grain banks in chronically food-scarce areas will be ...
[53]
Govt's Common Minimum Programme made public - The Rising Nepal
The 21-point Common Minimum Programme of the government focus on solving the issue of citizenship, control corruption, enhance healthcare, education and service ...
[54]
Ruling coalition specifies nine priorities in common minimum program
Apr 6, 2023 · Ending all forms of discrimination to create a social system based on equity, independence, and justice; controlling corruption and promoting ...
[55]
[PDF] How-did-the-UPA-spend-our-money.pdf
7,400 crore. • The National Common Minimum Programme (NCMP) through Bharat Nirman had also promised a time-bound plan to build rural infrastructure, under ...
[56]
Two Years of UPA Government - Communist Party Of India (Marxist)
Jun 13, 2006 · Power Sector Privatisation: The National Common Minimum programme states that, “The review of the Electricity Act, 2003 will be undertaken in ...Missing: history | Show results with:history
[57]
Common Minimum Programme And The Social Sector Investments
PDF | The NCMP certainly was an expression of the beginning of progressive prioritisation of the government, especially for the social sector. However,.
[58]
[PDF] Chapter 3: India's economic significance - Parliament of Australia
Although the 1996 CMP provided Central Government commitment to the continuation of the economic reform process and responsible economic management, the 1998 ...
[59]
A Comprehensive Look at Nepal Government's 2025-26 Policies ...
May 4, 2025 · It aligns closely with the minimum common program agreed upon by the ruling coalition of parties, aiming to promote effective governance, ...
[60]
The UPA Government: Challenges and Prospects
The next step is the successful conclusion of the Common Minimum Programme. No doubt, certain sectors like finance and education are under severe constraints.
[61]
[PDF] Country let down by UPA on all fronts - Bharatiya Janata Party
UPA Government has grossly failed to live up to the promises it had made in the Common. Minimum Programme; that its claims in successive budgets have been, as ...
[62]
On Withdrawal of Support to the UPA Government
Aug 7, 2009 · The Congress leadership has violated the understanding arrived at with the Left parties in November 2007, wherein the outcome of the talks with ...Missing: date | Show results with:date
[63]
UML mulls over Monday meet minutes - The Himalayan Times
Aug 13, 2005 · Khanal said his report concluded that the coalition government failed to implement its 43-point common minimum programme, correct regression ...Missing: failures | Show results with:failures
[64]
The Carter Center Urges Swift Resolution to Nepal's Political ...
Nov 22, 2010 · Kathmandu... Mistrust among Nepal's political leaders, failure to implement ... common minimum program for land reform. The government also ...Missing: coalitions | Show results with:coalitions
[65]
[PDF] Nepal: From Stalemate to State-Building
... Nepal as a result of two key factors: the absence of an agreement on a common minimum program and the failure to address economic governance both generally ...
[66]
Nepal's Common Minimum Programme: Falling Short on Foreign ...
Aug 13, 2021 · The CMP includes a vision on the priorities of the coalition government such as promoting the country's national interests; implementing ...
[67]
100 days of the NC-UML Coalition: Claim of success amidst failure
Oct 31, 2024 · It belatedly brought the common minimum programme after facing heavy criticism where, among others, it has committed to provide relief and ...
[68]
[PDF] Nepal: Critical Development Constraints
failures to implement planned capital spending and to large expenditures outside the budget. Public financial management has progressed somewhat, in ...
[69]
United we rule - India Today
Commitment to a Common Minimum Programme is nothing more than a post-election gimmick. ... India ... ideological compromise has been perfected at the top level.
[70]
[PDF] dynamics of coalition governments in india at the centre: changes ...
Apr 29, 2021 · Vajpayee in NDA government (1999-2004), Manmohan Singh in UPA government (2004-2014) work many times under pressure of their alliance parties.
[71]
India needs a genuine Third Front, not an opportunist alliance | Links
Mar 25, 2009 · India needs a genuine Third Front, not an opportunist alliance ... Front government at the centre! Answering questions from the press at ...
[72]
Editorial The UPA is in minority Is the deal so great to ... - Organiser
Jul 20, 2008 · ... withdrawal of support by the Left. Obviously, the Congress has. ... So from the beginning, the UPA-Left alliance was an opportunistic one knitted ...
[73]
Nepal 2013-14: breaking the political impasse - Asia Maior
[15] In March, a 145-point common minimum programme of the coalition government, a 13-point ethical code of conduct for the ministers – including the prime ...
[74]
Nepal: Prachanda -- `No illusions on the ultimate goal of socialist ...
Compromise is still necessary in this situation. However, the result of the compromise is not so satisfactory. Our effort to create a new constitution will ...Missing: criticism | Show results with:criticism
[75]
Q. Coalition governments have been a prominent feature of Indian ...
Jun 6, 2024 · Common Minimum Programme (CMP): Formulating a CMP to ensure coherent policy direction. For example: The UPA's CMP provided a balanced ...
[76]
Nepal's Foreign Policy Priorities - ISAS-NUS
Aug 17, 2023 · This paper analyses the foreign policy priorities of the Dahal-led coalition government. The coalition is a mixed bag of communist, liberal democratic and ...
[77]
Coalition Government - ACQ IAS Academy
Jun 29, 2024 · Challenges Due to Coalition Government ; Political Instability · Frequent Disagreements ; Policy Paralysis · Slow Decision-Making ; Myopic Decision- ...
[78]
Nepal's government will be constrained by infighting | Emerald Insight
Jan 3, 2023 · Lingden's party does not yet have any cabinet positions but did participate in a meeting last week to discuss a 'common minimum programme' for ...<|separator|>
[79]
Coalition Government - PMF IAS
Policy Paralysis and Ineffective Governance; Increased Corruption; Short-term focus and dependence on alliance. Implications of Coalition Governments. Impact on ...Missing: CMP | Show results with:CMP
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Coalition agreements and governments' policy-making productivity
Jan 23, 2023 · H2: The presence of a coalition agreement increases policy productivity more strongly for minimal winning cabinets as compared to minority or ...Missing: programme | Show results with:programme
[81]
A peek into coalitions after 1990 - The Kathmandu Post
Jan 1, 2023 · A governing coalition is formed when no single political party gains an absolute majority, and competing forces collaborate to install a government.
[82]
Risks of coalition government | The Annapurna Express
Dec 15, 2022 · A coalition government will invariably collapse and create the condition for re-election. It is unquestionably less effective, non-durable, and ...
[83]
[PDF] Fiscal Performance of Minority Governments - ifo Institut
Hypothesis 2: budget deficits and increases in public expenditure are larger under coalition minority governments than single-party minority governments (and ...
[84]
[PDF] The effect of election outcome on economic activity: a tale of two ...
219 notable finding is that coalition governments underperform in fostering economic growth relative to single-party governments. In contrast to the United ...<|separator|>
[85]
10-party ruling coalition unveils government's Common Minimum ...
Apr 6, 2023 · Kathmandu, April 6: The 10-party ruling coalition has unveiled the government's Common Minimum Program (CMP).The CMP includes implementing ...
[86]
Nepal's latest coalition reshuffle
Aug 14, 2024 · Unpopular rhetoric of political stability Coalitions have been more inevitable within the current mixed electoral system under the 2015 ...
[87]
Making a difference? Public perceptions of coalition, single-party ...
... government. Compared to single-party majority governments, critics of coalition or minority governments say that they limit direct accountability between ...Missing: effectiveness | Show results with:effectiveness
[88]
Are Coalition Governments Better Than Single Party Rule in The ...
May 25, 2024 · And there was the CMP or Common Minimum Programme which set the baseline for policy making. Sircar: Paradoxically, the Modi government has ...
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Nepal Country Report 2024 - BTI Transformation Index
There has been continued improvement in Nepal during the review period, despite significant obstacles to achieving sustainable governance and transformation ...
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Nepal's participatory governance in diverse political systems
Dec 1, 2023 · Nepal experienced three major political systems in the last seven decades: the multiparty political system (1958–1961 and 1990–2007), ...