MEMBERS REFERENCE SERVICE

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LOK SABHA SECRETARIAT

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REFERENCE NOTE

For the use of Members of Parliament NOT FOR PUBLICATION

No.44 /RN/Ref./October/2020

DEVELOPMENT SCHEMES IN NAXAL AFFECTED AREAS

Prepared by Shri Vinod Kumar, Deputy Director (23035499) under the supervision of Shri Neeraj Kumar, Joint Director (23035040), Smt. Neelam Sethi, Director (23034370) and Smt. Kalpana Sharma, Additional Secretary (23034845) re

The Reference Note is for personal use of the Members in the discharge of their Parliamentary duties, and is not for publication. This Service is not to be quoted as the source of information as it is based on the sources indicated at the end/in the context.

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DEVELOPMENT SCHEMES IN NAXAL AFFECTED AREAS

Naxal Problem in : Naxalism or Left Wing Extremism (LWE) is one of the major challenges to India's internal security. Maoist motto, "power flows from the barrel of gun", is their motivating force. seek to overthrow the State through violent means. They openly proclaim lack of faith in the democratic means of ballot and adhere to the violence as a means of achieving their ends. Naxal affected areas in India are known as the ''*.

The Naxal movement started with the tribal-peasant uprising against landlords in Naxalbari village of Darjiling district, in 1967. The uprising was led by leaders such as Charu Majumdar, and . Later, this militant movement spread all over West Bengal and was carried on by a large number of other groups† in different States. In a significant development in 2004, two main naxal groups, namely the Maoist Communist Centre of India (MCCI) and People’s War merged to form the CPI (Maoist) party. Eventually, by 2008 most of the other Naxal groups were merged into CPI (Maoist) which emerged as the umbrella of outfits. The Government of India has given a call to these groups to abjure violence and join the mainstream political processes by adopting constitutional means. Naxals rejected this call as they believe in bullet and not ballot. Between 2017 and 2019 around 511 civilians and 194 security personnel have been killed in Naxal violence across India.

Violence being the driving force of Naxal ideology, they often resort to killing and kidnapping. The Maoist insurgency doctrine glorifies violence as the primary means to

* Red Corridor spreads from to involving 16 provinces of India and nearly 200 districts of these States. Worst affected States are: , Bihar, , , , , , , and West Bengal. † Some important Maoist Groups are: Maoist Unity Centre (Maharashtra), Peoples War Group (Andhra Pradesh and Chhattisgarh), CPI (Marxist & Leninist) (Bihar, Jharkhand, West Bengal), Maoist Communist Centre of India (MCCI) and CPI (ML) Red Flag (Bihar) and CPI-MC Janashakti (Kerela). 2 overthrow the existing socio-economic and political structures. The Peoples Liberation Guerilla Army (PLGA), the armed wing of CPI (Maoist), has been created for this purpose. In the first stage of the insurgency, the Peoples Liberation Guerilla Army (PLGA) resorts to guerrilla warfare which aims at creating a fear psychosis in the existing governance structures. This is attempted by killing lower-level government officials, local police personnel, workers of mainstream political parties and elected representatives of the Panchayati Raj Institutions.

In the areas under Maoist domination, the absence of governance, which is created by their violent methods in the first place, becomes a self- fulfilling prophecy. The service delivery systems are extinguished through killing, kidnapping, intimidation and extortion. Kidnapping high value targets like Districts Magistrates is done to negotiate the release of high value arrested cadres. Sometimes, insurgency itself is seen as a form of livelihood by the cadres. In the meanwhile, many frontal organizations are created to facilitate mass- mobilization in semi-urban and urban areas through ostensibly democratic means. Most of these frontal organizations are led by highly-educated people who have a firm faith in the insurgency doctrine and provide intellectual support to the movement in the name of fighting exploitation of tribals. They also form propaganda/disinformation machinery of the party. They stridently take up issues like ‘displacement of tribals’, ‘corporate exploitation’, ‘human rights violations’ by security forces etc., and often make fantastic claims in this regard which get reported well in the mainstream media. The frontal organizations also skillfully use State structures and legal processes to further their agenda and weaken the State mechanism. Important functions of these organizations include recruitment of ‘professional revolutionaries’, raising funds for insurgency, creating safe houses for underground cadres, providing legal assistance to arrested cadres and mass-mobilization by agitating over issues of relevance/convenience. They also have a strategic game-plan of creating a ‘United Front’ with like-minded insurgent/terrorist outfits in India.

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Ban on the Movement: The Maoists, the major Left Wing Extremist organization responsible for most incidents of violence/casualties, has been included in the Schedule of Terrorist Organizations, along with all its formations and frontal organizations on 22 June, 2009 under the Unlawful Activities (Prevention) Act, 1967‡.

Government of India's Approach: As per Seventh Schedule of the Constitution of India, subjects of Police and Public Order are with the State Governments. The Government of India has been supplementing the efforts of States affected by left wing extremism. To address the Left Wing Extremism (LWE) holistically, Government of India has approved a National Policy and Action Plan in 2015. It envisages a multi- pronged strategy involving security related measures, development interventions, ensuring rights and entitlements of local communities etc. While on security front, the Central Government assists the LWE affected State Governments by providing Central Armed Police Forces battalions, training, provision of helicopters/UAVs, sharing of intelligence etc; funds for modernization of State police forces, equipments & arms, provision of funds under various schemes. To supplement the development, the Central Government has taken various measures including construction of roads, improving network of banks, post offices, health and education facilities in the LWE areas. Apart from flagship/ developmental Schemes being implemented by the line Ministries/ Departments, some specific schemes are also being implemented in LWE affected areas. Details are as follows:-

Security Related Expenditure (SRE): This Scheme has been extended by the Government on 27.09.2017 as a sub scheme of the Umbrella Scheme, 'Modernization of Police Forces' for a period of 03 years till 2020. Under the Security Related Expenditure (SRE) Scheme, the central Government reimburses to the State Governments of 11 LWE affected States Security Related Expenditure of 90 districts relating to training and operational needs of security forces, ex-gratia payment to the family of civilians/security forces killed/injured in LWE violence, compensation to Left Wing Extremist cadres who

‡ The Gazette of India, Extraordinary, Part-II, Section-3, Sub-section (ii) dated June 22, 2009.

4 surrendered in accordance with the surrender and rehabilitation policy of the concerned State Government, community policing, Security related infrastructure for village defence committees and publicity materials. There is a substantial increase in annual outlay and new items such as compensation for Security force personnel incapacitated during anti LWE operations and compensation for the property damage have been included in this scheme. The SRE Scheme aim at strengthening of the capacity of the LWE affected States to fight the LWE problem. Rs. 266.95 crore has been allocated in financial year 2020-2021 under this scheme.

Special Central Assistance (SCA) for 30 most LWE affected districts: This Scheme has been approved by the Government on 27.09.2017 as a sub-scheme of the Umbrella Scheme, ‘Modernization of Police Forces’. The main objective of the Scheme is to fill the critical gaps in Public infrastructure and Services, which are of emergent nature. Rs. 950 crore has been allocated in the financial year 2020-2021 under this scheme.

Special Infrastructure Scheme, along with Construction of Fortified Police Stations in the LWE affected States: On regular demand of the LWE affected States, the Central Government has approved this Scheme as a sub-scheme of the Umbrella Scheme, ‘Modernization of Police Forces’. Sixty per cent of the total outlay of the scheme is Centre share and Forty per cent is State share. Rs. 98.80 crore has been allocated in the financial year 2020-2021 under this scheme. Civic Action Programme (CAP) and Media Plan: This Scheme has been approved by the Government on 27.09.2017 as a sub-scheme of the Umbrella Scheme, ‘Modernization of Police Forces’. This Scheme has been implemented to bridge the gaps between Security Forces and local people through personal interaction and bring the human face of security forces before the local population. The Scheme has been very successful in achieving its goal. The Maoists have been misguiding and luring the innocent tribal/local population in LWE affected areas by their so-called poor-friendly revolution through petty incentives or by following their coercive strategy. Their false propaganda is targeted against the security forces and the democratic setup. Therefore, the Government is implementing Media Plan in these affected areas. Under the scheme, activities like Tribal Youth Exchange Programmes organized by Nehru Yuva Kendra Sangathan (NYKS), broadcasting audio jingles by All India Radio (AIR), presenting programmes on development issues through the Song & Drama Division/AIR and distribution of pamphlets in the affected States, etc. have been carried out. Rs. 26.13 crore has been allocated in the financial year 2020-2021 under this scheme.

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Road Requirement Plan-I (RRP-I) for LWE affected areas: This Scheme is being implemented by Ministry of Road Transport & Highways for improving road connectivity in 34 LWE affected districts of 8 States i.e. Andhra Pradesh, Bihar, Chhattisgarh, Jharkhand, Madhya Pradesh, Maharashtra, Odisha and Uttar Pradesh. This scheme envisaged construction of 5,422 km roads lengths in LWE affected States, of which 4,868 km roads have been completed by 30.11.2019. Road Connectivity Project for LWE affected areas (RRP-II): The Government approved this scheme on 28.12.2016 for further improving road connectivity in 44 districts of 9 LWE affected States. This Scheme envisages 5412 km roads and 126 bridges at an estimated cost of Rs. 11,725 Crore. Ministry of Rural Development is the nodal Ministry for this project. The roads included under the scheme have been identified by the Ministry of Home Affairs in consultation with the State Governments and the security agencies. 1373 km roads have been constructed so far till 31.12.2019. Assistance to Central Agencies for LWE Management Scheme: This Scheme has been approved by the Government on 27.09.2017 as a sub scheme of the Umbrella Scheme, 'Modernization of Police Forces'. Under the Scheme, assistance is provided to Central Agencies (CAPFs/IAF etc) for strengthening of infrastructure and hiring charges for Helicopters. Rs. 103.55 crore has been allocated in the financial year 2020-2021 under this scheme. Scheme of Fortified Police Stations: The Ministry had sanctioned 400 police stations in 10 LWE affected States. Of these 399 of police stations have been completed. LWE Mobile Tower Project: To improve mobile connectivity in the LWE areas, the Government on 20.08.2014 approved installation of mobile towers in LWE affected States and 2335 mobile towers have been installed in Phase-I. Phase-II of the project has been approved by the Government of India, under which 4072 mobile towers, involving an expenditure of Rs. 7330 crore, will be installed in LWE affected States. Aspirational Districts: The Ministry of Home Affairs has been tasked with the monitoring of Aspirational districts programme in 35 LWE affected districts.

Benefits of the development Schemes:- The Government of India has been implementing Road Requirement Plan (RRP-I) since 26.02.2009 for improving road connectivity in 34 LWE affected districts. The Scheme envisages construction of 5,422 km of roads and 08 critical bridges at the estimated cost of ₹8,593 crore. Up to 31.03.2019, total 4,792 km roads and 04 bridges have been completed. The Scheme “Road Connectivity Project for Left

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Wing Extremism Affected Areas” (RRP-II) envisaged construction/upgradation of 5412 km. of roads and 126 bridges/cross drainage works at an estimated cost of ₹11,725 crore in 44 LWE affected districts. Sanction of 4574 km of roads has already been conveyed to the States. Besides, the Ministry of Home Affairs, in consultation with the State Governments and security agencies, has identified 6043 km additional roads and recommended for their inclusion into the scheme. Under the scheme "installation of Mobile Towers" 2335 Mobile Towers have been operationalised in Phase-I of the scheme and installation of 4072 Mobile Towers is envisaged in PhaseII of the Project. Under the Fortified Police Stations Scheme, 397 fortified police stations have been constructed @ Rs. 2.5 crore per Police Station. The Government of India has been addressing the menace holistically by adopting the multipronged approach and the results have been encouraging. Resolute implementation of the National Policy and Action Plan by the Government has resulted in significant improvement in the LWE scenario across the country. Last five years have seen a significant decline in LWE violence as well as the geographical spread of LWE. 90 districts in 11 States in the country are considered LWE affected, however LWE related violent incidents were reported in 61 districts in 2019 and in only 46 districts in first half of 2020. Only 10 districts account for two-third of LWE violence. The decline trend continued in the year 2019. For data related to State-wise incidents of violence during last three years (See Annexure). The LWE related incidents of violence between May-2014 to April-2019 have been 43% lesser while compared with the preceding 5 years period. The multi-pronged efforts of the Government are slowly showing positive impact and results. Some of the details since 2016 are given as under :-

2016 2017 2018 2019 2020(upto 15.08.2020) Security Forces 65 75 67 52 34 Personnel Killed Civilians Killed 213 188 173 150 68 Left Wing Extremists 222 136 225 145 54 Killed Left Wing Extremists 1442 685 644 440 241 surrendered 7

Conclusion There is a widely accepted view that the Naxal problem can be tackled successfully through a combination of development and security related interventions. The problem is not to be viewed entirely as a law and order issue. Often, innocent tribals who live in the interior forest regions fall a prey to Naxal intimidation. Innocent tribal people are killed merely on the suspicion of being police informers. Thus, it is clear that the Maoists do not want the State to address root causes like underdevelopment in a meaningful manner since they resort to destroying school buildings, roads, railways, bridges, health infrastructure, communication facilities etc in a major way. However, the Government and informed sections of society are optimistic of eradicating the LWE problem through a multi-pronged approach and a strategic vision.

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References: 1. Mishra, R.N. and Singh, Inderjeet: Naxalite Movement- A biggest internal threat to India in Threats to India's Internal Security by Sanjay Kumar and Anurag Jaiswal (ed.) New Delhi, Mohit Publications, 2014. pp. 52-53 2. The Gazette of India, Extraordinary, Part-II, Section-3, Sub-section (ii) dated June 22, 2009 3. Lok Sabha Starred Question No. 27 dated 19.11.1019 4. Rajya Sabha Unstarred Question No.1179 dated 21.09.2020 5. https://idsa.in/idsacomments/perception-left-wing-extremism_mssimon_300516India, 6. Ministry of Home Affairs, Annual Report 2018-19. pp.10-14

7. http://mha.nic.in/naxal_new 8. https://www.indiabudget.gov.in/outcomebudget.php

9. https://www.mha.gov.in/division_of_mha/left-wing-extremism-division

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ANNEXURE

DATA RELATING TO LEFT WING EXTREMISM (LWE) VIOLENCE

State Incidents Civilians Killed SFs Killed LWEs Killed LWEs Arrested 2017 2018 2019 2017 2018 2019 2017 2018 2019 2017 2018 2019 2017 2018 2019 Andhra 26 12 18 6 3 5 1 0 0 3 0 7 74 63 42 Pradesh Bihar 99 59 62 22 13 16 0 2 1 7 2 7 388 374 389 Chhattisgarh 373 392 263 70 98 55 60 55 22 80 125 79 796 931 367 Jharkhand 251 205 200 53 34 42 3 9 12 12 26 27 464 372 290 M.P. 3 4 5 1 0 2 0 0 0 0 0 2 10 14 11 Maharashtra 69 75 66 13 12 18 3 0 16 17 52 8 21 15 11 Odisha 81 75 45 21 11 10 8 1 1 8 19 8 56 39 47 Telangana 5 11 8 2 2 2 0 0 0 9 1 2 61 113 112 Uttar 0 0 0 0 0 0 0 0 0 0 0 0 0 2 4 Pradesh West Bengal 0 0 0 0 0 0 0 0 0 0 0 0 1 7 0 Others 1 0 3 0 0 0 0 0 0 0 0 5 17 3 3 TOTAL 908 833 670 188 173 150 75 67 52 136 225 145 1888 1933 1276

Source:- Lok Sabha, Unstarred Question No. 1556 dated 11.02.2020.

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