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India's Border Management India’s Border Management Select Documents Editor Pushpita Das Institute for Defence Studies and Analyses New Delhi © Institute for Defence Studies and Analyses, New Delhi. All rights reserved. No part of this publication may be reproduced, sorted in a retrieval system or transmitted in any form or by any means, electronic, mechanical, photo-copying, recording or otherwise, without the prior permission of the Institute for Defence Studied and Analyses (IDSA). ISBN: 81-86019-68-5 First Published: April 2010 Published by: Institute for Defence Studies and Analyses No.1, Development Enclave, Rao Tula Ram Marg, Delhi Cantt., New Delhi - 110 010 Tel. (91-11) 2671-7983 Fax.(91-11) 2615 4191 E-mail: [email protected] Website: http://www.idsa.in Printed at: M/s Printline H-10, IInd Floor, NDSE-I New Delhi - 110049 Tel: (91-11) 24651060, 24643119 Email: [email protected] Price 895/- Contents Foreword i Acknowledgements iv Introduction 1 1. Border Management, Annual Report 2008-09, Ministry of Home Affairs, New Delhi 41 2. Coast Guard, Annual Report 2008-09, Ministry of Defence, New Delhi 68 3. Development of National Highways in North Eastern Region, Border Roads Organisation, Annual Report 2007-08, Ministry of Surface Transport and Highways, New Delhi 75 4. The Land Port Authority of India Bill, 2008 94 5. Border Area Development Programme (revised guidelines-2008), Ministry of Home Affairs, New Delhi 129 6. Trends in Outright smuggling (Commodity-wise & Sector-wise), Annual Report 2006-07, Directorate of Revenue Intelligence, Ministry of Finance, New Delhi 143 7. Schemes, policies and programmes of the Ministry, Extracts from the 126th Report of the Standing Committee on Home Affairs, presented to the Rajya Sabha on April 26, 2007 166 8. Multipurpose Identity Cards Scheme, Extracts from the 124th Report of the Standing Committee Home Affairs, presented to the Rajya Sabha on March 20, 2007 180 9. Sashastra Seema Bal, 123rd Report on Sashastra Seema Bal Bill 2006, presented to the Rajya Sabha on 27 Februray 2007 184 10. Sashastra Seema Bal Bill 2006 (Extracts) 203 11. Border Management, Reforming the National Security System - Recommendations of Group of Ministers’, Ministry of Home Affairs, February, 2001 257 12. Report on Illegal Migration to Assam, by Lt. General (Retd) S.K. Sinha (Submitted to President of India), November 8, 1998 319 13. Transforming the Northeast, High Level Commission Report to the Prime Minister, Planning Commission, Government of India, March 7, 1997 354 Foreword India has extremely complex borders. It has 14818 kilometers of land borders and a coast line of 7516.6 kilometers. All states except Madhya Pradesh, Chattisgarh, Jharkhand, Delhi and Haryana have an international border or a coast line. 92 of India’s 593 districts are border districts in 17 states. Indian borders run through plains, hills and mountains, deserts, riverine territories and marshes. Managing such a diverse border is a complex task but vital from the point of view of national security. The terrorist attack in Mumbai on 26 November 2008 brought out starkly that despite a number of measures taken by the government in recent years to strengthen border security, the terrorists could use the gaps in the borders to perpetrate their heinous acts. The attacks re-emphasised, inter alia, the need for better border management. India’s land and sea borders as well as air space continue to remain vulnerable. Managing the borders is difficult for several reasons. Some of our maritime boundaries are still unsettled. Land borders are not fully demarcated. Sections of our borders are based on artificial boundaries and not based on natural features. Border guarding forces are often under resourced and ill- equipped. They are also used for purposes other than border guarding. Intelligence gathering, intelligence sharing and intelligence coordination are imperfect. Institutional mechanisms for coordinating intelligence gathering, sharing and intelligence coordination are weak. India’s neighbourhood is in turmoil. Several of India’s neighbours are undergoing political and economic instability. India also has continuing border disputes with several of its neighbours. Uncertain borders not only raise bilateral tensions but also facilitate cross border infiltration, illegal migration, smuggling and crime. Illegal migration has emerged as one of the major national security challenges. The Group of Ministers undertook a thorough review of border management issues and made several recommendations in 2001. Many of these recommendations are being implemented. One of the major recommendations was the setting up of a separate Department of Border Management within the Ministry of Home Affairs. This has been done. Yet other major recommendations like the early settlement of our maritime borders and the demarcation of land boundaries has not yet been fully implemented. The GoM had strongly recommended the principle of “one border one force” for better accountability. It emphasized the imperative of not deploying the border guarding forces for law and order duties and counter insurgencies. It made some recommendations specific to better management of India-Pakistan, India-Nepal and other borders. It lamented the neglect of maritime borders and island territories and made recommendations to strengthen coast guard and police. As a result of these recommendations border management has got more attention but the Mumbai terrorist attacks have once again shown that a lot more needs to be done to improve border management. In the last two years India has built several thousand kilometers of fences on India-Bangladesh and India-Pakistan borders. Border guarding forces have been augmented. Several thousand crores of rupees have been spent on their modernization and expansion. The Government has announced a policy of setting up 13 modern integrated check posts to improve border management. It is, however, clear that managing borders is likely to be prove a long and complex task. Despite best intentions and efforts fool proof borders are unlikely to materialize in the short term. Technology will play a major role in improving border management. We may have to learn how other large countries manage their borders. ii The IDSA has devoted considerable attention to the problem of border management. Its scholars have visited different sections of the borders to gain familiarity with the problems of border management. Dr. Pushpita Das has been looking at the problem of border management for several years now. She has published a number of scholarly articles based on her field visits and interviews. She has compiled the present volume titled India’s Border Management: Select Documents, which brings together various official documents pertaining to border management. The volume includes extracts from the Annual Report of the Ministry of Home Affairs, Ministry of Defence, and, Ministry of Surface Transport and Highways. It also has a report on illegal migration to Assam and extracts from a report of the Parliamentary Standing Committee on multi-purpose identity card scheme. The documents included in this compilation are primary source material for researchers wishing to carry out research on India’s border management problems. Dr. Das has written a comprehensive introduction in which she has not only summarised the features of the Indian borders but also the problems of border management. It is hoped that this volume will be found useful by academicians and policy makers alike. New Delhi Arvind Gupta April 2010 Lal Bahadur Shastri Chair IDSA iii Acknowledgements The author thanks Dr. Arvind Gupta, Lal Bahadur Shastri Chair, IDSA and Cluster Coordinator, Internal Security Cluster, for suggesting the idea for this volume and for his constant support and encouragement. She also extends her thanks to the anonymous referee for the useful comments and suggestions, Vivek Dhankar for preparing the maps for the book, Vaijayanti Patankar for the initial layout and formatting, and Vivek Kaushik for putting the book through its paces. New Delhi Pushpita Das April 2010 iv India’s Border Management Introduction The evolution of boundaries in the Indian subcontinent has a long historical legacy, which often has been a source of tension and conflict between neighbours. Before 1947, the Indian subcontinent was a single geographical unit comprising present- day India, Pakistan, Nepal, Myanmar, Bangladesh and Sri Lanka, and marked by political, social and economic unity. People and goods were free to move anywhere in the subcontinent unhindered by barriers. However, political and administrative compulsions led to the division of the subcontinent and the eventual break-up of its social and economic unity as well. States based on religious and ethnic identities were carved out from this single geographical unit. Boundaries hastily drawn to give shape to the new political entities did not follow any distinct physical feature. These superimposed lines cut across ethnic, social and economic communities, severing social and economic ties among the people straddling these new borders. Consequently, people of the same village often found themselves citizens of two different countries separated by a line. Their livelihoods were severely threatened by the disruption of trade as barriers were erected in the way of the smooth flow of cargo and passengers. Like all boundaries in South Asia, India’s boundaries are also man-made. India shares 14,880 kilometres of boundary with Pakistan (3323 km), China (3488 km), Nepal (1751 km), Bhutan (699 km), Myanmar (1643 km), and Bangladesh (4096.7 km). India’s boundary with each of its neighbours runs through a variety of ecological milieus, each with its own unique setting and associated problems. For example, India-Pakistan border areas are spread across extreme climatic conditions given that the boundary runs from the hot Thar Desert in Rajasthan to the cold Himalayas in Jammu and Kashmir. Similarly, in the north, the India-China boundary runs along one of the loftiest mountain ranges covered with snow all through the year. The India- Myanmar boundary is draped with lush tropical forests with its 1 Pushpita Das myriad undergrowths.
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