Power, in theory, is meant to reside in institutions. In democracies, it is vested in constitutions, cabinets, parliaments and elected leaders. But history repeatedly shows us that between the supremo and the people there mostly arises another force: the coterie. Invisible in formal charts of authority, unaccountable to public scrutiny, and operating through proximity rather than legitimacy, the coterie becomes the shadow government of regimes. Indeed, there are times when the leader himself appears less consequential than those who surround him.In India, one of the most famous examples was that of R. K. Dhawan, the long-serving private secretary to prime...