Apparently the delay has been caused because Modi wanted a clear, crisp document, not one that is verbose and full of waffle.
In short he does not want a "legal" document. I am sure that would have p****d off a lot of the lawyers who infest BJP headquarters (as they also infest the Lutyens Delhi offices of other parties).
It is implementation of a manifesto that is important. For those who know how to wiggle out of commitments, making manifestos is easy.
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