A Case for Intelligence Reforms in India
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AA CCASE FOR IIINTELLIGENCE RREFORMS IN IINDIA IDSA TASK FORCE REPORT 1 IDSA Task Force Report 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 Studies and Analyses (IDSA). ISBN: 978-93-82169-03-1 Disclaimer: The views expressed in this Report are of the Task Force members and do not necessarily reflect those of the Institute and the Government of India. First Published: 2012 Price: Rs. 250/- 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 Layout & Cover by: Geeta Kumari Printed at: M/s Printline H-10, IInd floor, NDSE-I New Delhi - 110049 Tel: (91-11) 24651060, 24643119 Email: [email protected] 2 CONTENTS Foreword ................................................................................................................ 5 Executive Summary .............................................................................................. 7 Abbreviations ......................................................................................................... 10 Chapter 1 The Rationale for Intelligence Reforms ................................................................ 15 Chapter 2 New challenges of national security management ............................................. 20 Chapter 3 Legal status ............................................................................................................ 32 Chapter 4 Recruitment ............................................................................................................ 36 Chapter 5 Content of analysis & operations ......................................................................... 51 Chapter 6 Technology updates .............................................................................................. 58 Chapter 7 Military intelligence needs ................................................................................... 61 Chapter 8 External intelligence- relations with MEA ........................................................... 74 Chapter 9 Coordination of intelligence .................................................................................. 82 Chapter 10 Accountability ....................................................................................................... 110 Conclusion ............................................................................................................. 111 3 IDSA Task Force Report 4 FOREWORD The unprecedented attack on Mumbai necessity for the regular and periodic -on 26.11.2008 focused attention on the briefings of the political executive after complex security challenges facing they receive the intelligence inputs in a India, which have the potential to derail processed form. its economic and social progress. In the A Task Force, consisting of S/Shri R. aftermath of that incident, the Banerji, Special Secretary (Retd.) in the functioning of India's security and Cabinet Secretariat, P. K. Upadhyay, intelligence set-up and its ability to (Consultant, IDSA), Harinder Singh (then meet the new emerging challenges was Research Fellow, IDSA), have brought out extensively discussed in various circles. the present report. It was assisted by Brig Even earlier, after the Kargil intrusions (Retd.) Rumel Dahiya, (presently the in 1999, the issue of intelligence lapses Deputy Director General, IDSA), Raj had been examined in depth and several Shukla (then Research Fellow, IDSA), Alok recommendations made by the Task R. Mukhopadhyay, and other experts. Force set up by the Group of Ministers Colleagues from the diplomatic service were implemented. Nevertheless, provided some inputs on the interface doubts persist about the adequacy of between the intelligence agencies and the intelligence mechanisms and the Ministry of External Affairs. somewhat piecemeal or ad hoc nature of reforms being implemented. We were also fortunate to have the benefit Besides, no less a person than the Vice of the advice from noted experts in the President of India, Shri M. Hamid field, who participated in a round table Ansari has also spoken about the need discussion at IDSA in August 2010. These for the accountability of intelligence included the veteran security analyst (late) agencies and the necessity for them to Shri K. Subrahmanyam, former National function under some sort of legal cover. Security Adviser, Shri Brajesh Mishra, former intelligence professionals - Shri The Institute for Defence Studies and G.C. Saxena, Shri A.K. Verma, Shri Ajit Analyses (IDSA), on its part, has tried Doval and experienced police and to look at the problem in somewhat military officers like Shri Ved Marwah broader terms and study the and Lt Gen (Retd) R. Sawhney. functioning of country's intelligence set-up; analyse the factors that impede The project also benefited from the good intelligence at various stages of advice provided by some other collection, initial analysis, inter-agency intelligence professionals like: Shri cooperation and assessments and what Kalyan Mitra, former Director General can be done to improve assessments Security; Shri D. C. Nath, former Special and human resources. It has also tried Director, Intelligence Bureau; noted to examine the related issue of the terrorism expert, Shri B.Raman; Shri K. 5 IDSA Task Force Report Santhanam, former Chief Adviser, provided a legal-framework for their Technology to the Government of India existence and functioning; their and ex-DG, IDSA; and Shri V. functioning must be under Parliamentary Balachandran, former Special Secretary, oversight and scrutiny; and extensive Cabinet Secretariat and co-author of the reforms must be carried out in the Pradhan Committee report on the recruitment and training processes of their Mumbai 26/11 lapses. personnel, their pay structures and career progression to attract the best talent A report based on these consultations and available in the country. It is only then that discussions, stretching over a year-long the Indian intelligence agencies would be period was drafted by Shri R. Banerji. able to meet the myriad challenges the Besides, the former Director General of the country faces in the new millennium. IDSA Shri N.S Sisodia not only provided valuable inputs, suggestions and directions We believe that this report, which relies on from time to time, but also extensively inputs in public domain and does not vetted the report, which was finally given reflect the views of either the Government its present shape by Shri P.K. Upadhyay. of India, or the IDSA, will nonetheless promote an informed discussion on key The key recommendations made by the issues affecting our intelligence set up and Task Force in the report are: The hopefully, set in motion the process for intelligence agencies in India must be further reforms. Arvind Gupta New Delhi Director General, IDSA 6 EXECUTIVE SUMMARY OF RECOMMENDATIONS TOWARDS REFORMS IN THE Public Service Commission; COUNTRY’S INTELLIGENCE APPARATUS l Use deputation slots to induct experts l The paradigm shift in the nature of from the military and science & the security challenges facing the technology streams; country lends urgency to the need l Outsource to meet specialised needs; for reforms in country’s intelligence apparatus; l Improve training modules, including specialised training for analysts; l There is a need for comprehensive, not adhoc and piecemeal, reforms; l Improve quality of trainers, bring in military trainers; l The focus of this exercise should be on removing the deficiencies within l Review the present system of writing the system, improving coordination Annual Confidential Reports (ACR) in between intelligence agencies and intelligence agencies to eliminate ensuring better accountability and subjectivity and bring about better oversight. objectivity; l Review in situ promotions to improve LEGAL STATUS morale at middle, mid-senior levels. l Introduce legislation in Parliament for laying down the charters, ANALYSIS & OPERATIONS functions and duties of intelligence l Improve training for analysts in organisations; tools of modern prescriptive work; l Provide a legal basis for different l Improve quality of supervision in tiers of accountability – executive, operational branches of intelligence financial and legislative; agencies, reverse drift in operational work, discard useless and profligate RECRUITMENT, DEPUTATION, sources; PROMOTION, TRAINING l Bring better financial probity in l Have open and separate direct intelligence operations; recruitment mechanisms for different l Introduce concept of social welfare intelligence agencies - advertising for safeguards for assets who rendered the best talent available, specifying the valuable service for national qualifications required, including security, but became casualties on the linguistic abilities – by using the job. existing mechanism of the Union 7 IDSA Task Force Report TECHNOLOGY UPGRADE area desk officers; l Enhance in-house technical research l Resume the practice of posting a Joint and development capabilities- Secretary level Foreign Service officer especially in relation to signals in external intelligence – for better decryption work, and cryptography coordination