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THE return of the Congress party under Indira Gandhi to power at the Centre in the beginning of this year was facilitated as much by the failures of the Janata party government as by the promise by the Congress (I) was that unlike the Janata, the party would provide a government that worked. That promise, even while it was being made, did not possess much conviction; now, eight months after the party's return to power, not merely is there no sign of a government that works, but what little work that has been attended to has been almost solely devoted to the completion of the "unfinished tasks' when the party lost power in March 1977.