THE AGENDA FOR ACTION JANUARY2009 MUMBAI’S ICONIC TAJ HOTEL IN FLAMES AS 26/11 UNFOLDED

THE AGENDA From the editor-in-chief AROON PURIE

here have been many comparisons made be- nation and response to terror threats, but are these tween 9/11, the airborne terrorist attacks on measures enough? Already, we are seeing the pro- Manhattan’s iconic Twin Towers and the posed National Investigation Agency (NIA) and the new TPentagon in Washington, and 26/11, the equally anti-terror laws become victim to Centre-state friction. devastating attacks on Mumbai by seaborne terrorists. In addition, the main opposition party, the BJP, has lost For America, its leaders and its citizens, 9/11 was a piv- no opportunity to politicise the issue and criticise the otal moment in the country’s history. It shattered Government’s response to the Mumbai mayhem. Even America’s myth of invincibility and changed the without those disquieting signals, there remains a wor- country in profound, unforeseen and far-reaching rying question mark over India’s ability to improve se- ways, especially in terms of their response to make curity and intelligence, bring major reforms in the their cities and citizens more secure against the threat police forces, put laws in place that are not open to mis- of global terrorism. The United States reacted to the use and bring about durable and desirable change in attacks by launching a War on Terror, tightening what is loosely referred to as “the system”. Many internal security, enacting the Patriot Act, creating a Indians, and with good reason, view our politicians new Department of Homeland Security, strengthening with cynicism and foresee a time when the current anti-terrorism legislation and expanding law enforce- sabre rattling and promise of action ends and it’s back ment powers. Average citizens willingly accepted the to business as usual. Or, no business as usual. new impositions on their personal freedom. Seven The reason for the pessimism is obvious. After the years and three months later, the results of those shocking attack on Parliament, a terror plot that efforts have been quite dramatic and educational. targeted the most potent symbol of Indian democracy, There has not been a single terror attack on American much was expected from the government of the day. soil since September 2001. Instead, there is an unsettling sense of deja vu. Similar For many Indians, the December 2001 attack on pressure was put on Pakistan, the two nuclear-armed Parliament was seen as the most serious terrorist neighbours put their forces on alert and moved them attack so far, aimed as it was at the most obvious closer to the borders and tough new laws were symbol of Indian democracy. Yet, for India and the enacted. Only one perpetrator was arrested and Indian Government, 26/11 has easily eclipsed the still awaits punishment thanks to the flaws in the Parliament attack as the most serious security threat criminal justice system, official procedures and to the country short of a conventional war. One reason political manipulation. The “system” was shaken was the sophistication, training and entry by sea which up for a few weeks and then returned to its somnolent, was almost comparable to hijacking an aircraft, as in bureaucratic ways, a euphemism for making 9/11. Besides the terrible loss of lives, it was the au- sure nothing changed. dacity of the attack which has made us all feel very vul- Mumbai was the result of our callous approach to nerable. It seemed nothing was impossible for the security. The systemic failures were shown up in stark terrorists. Clearly, the bar has been raised to unprece- and shameful ways: the poorly equipped police clearly dented and challenging levels and the response needs untrained to tackle terror strikes of such magnitude, to be equally unprecedented. 26/11 exposed the flaws the lack of proper security, a fatal lack of coordination and failures in the system which allowed such a among security agencies, the refusal to share intelli- heinous attack to take place. Understandably, the offi- gence and, even when it was shared, to act decisively cial reaction has been largely Pakistan-oriented but on it, with just one Central force equipped and trained other measures have followed since heads rolled in to tackle heavily armed and highly motivated terror- Mumbai and Delhi, and a new minister has taken ists based at faraway Manesar in Haryana, a crucial charge of the crucial Ministry of Home. nine hours away from the scenes of terror and de- There has been some movement on the part of the struction. There were politicians who failed and fum- Government: increased security, changes in anti-ter- bled, bureaucrats who twiddled their thumbs and ror laws, ordering of new equipment, new commando awaited orders from above which never came, and hubs and new government agencies for better coordi- most alarming, a city that was the pride of India,

5 THE AGENDA

rendered so utterly vulnerable and held hostage by just Journalists with the requisite expertise were tasked 10 men for almost 60 hours. It was a nationally-tele- with consulting leading experts in their respective vised display of incompetence, almost frightening in its areas of concern and then drawing up a detailed, time- scale and depth. The questions we asked then are still bound plan for implementation. relevant. Why was it allowed to happen? Who was The 12 areas we have chosen are as follows: responsible? What can be done to prevent it? Can 1 Securing the Home Front: A total revamp of the anything be done? Home Ministry and related agencies for coordinated Those are the questions everyone is asking all response to terror threats. across India and many have taken to the streets to 2 Tackling Pakistan: A major global diplomatic protest against the Government, to demand change in thrust to expose Pakistan’s complicity as well as the system and pledged to make their voices heard and that of other countries like Bangladesh that harbour their actions count in the war on terror. The citizens’ terror groups. movement in the wake of the Mumbai attacks has been 3 Overhauling the Police: The men in khaki are the unprecedented in scale and involvement. A majority footsoldiers in the battle against terror, and major were ordinary people who, perhaps for the first time, changes are urgently required to equip them with feel not only a sense of fear and helplessness but also effective equipment, training and motivation. anger. That is quite understandable and even desirable 4 Modernising the NSG: The NSG is our main weapon in the present context but most of them are sure of one against terrorists but it needs to be expanded and thing: they want change but are not quite sure how to equipped to meet all future exigencies. achieve it, individually or collectively. There is consid- 5 Upgrading Intelligence: To change the existing erable hope invested in the upsurge of patriotism, sense set-up for better intelligence gathering and dissemi- of nationalism and desire to get involved. nation among the multiplicity of agencies. That reaction is but natural. What the Mumbai 6 Safeguarding Megacities: We need to build a attacks represented was a national crisis of unprece- security fortress around our major cities. dented magnitude. 2008 has seen the largest number 7 Plugging Vulnerable Zones: The Mumbai attacks of terror attacks on the country—Ahmedabad, Jaipur, exposed new areas of vulnerability. We need to Delhi, Hyderabad and Bangalore, to name the most secure our coasts, airports, railways, nuclear sites, oil prominent. Six cities were targeted in nine separate ter- installations and other symbols of our democracy and ror attacks that claimed the lives of nearly 1,600 peo- economic progress. ple. Mumbai was the ultimate horror. We have, since the 8 Toughening the Law: The existing laws need to be Mumbai attacks, seen a spate of seminars and discus- modified to speed up the criminal justice system. sions on the issue of tackling terror with counter-ter- 9 Squeezing Terror Funding: What needs to be done rorism experts discussing threadbare the options to track movement of explosives and chemicals and available to the Government and people in these chal- plug the flow of illegal money to the terrorists. lenging times. But it is worthwhile to channelise that 10 Strengthening the Armed Forces: What the public anger and outrage and think of ways to con- armed forces need to do to meet the new challenges. tribute to the anti-terror movement in meaningful ways 11 Winning Kashmir: How to win hearts and minds and help to catalyse the process of change. Not just in Kashmir and counter the fundamentalist threat. change for the sake of change. As Barack Obama’s cam- 12 Citizens Charter: What we all can do individually paign slogan put it, we need “change we can believe in”. to be responsible citizens and raise awareness. As part of that effort, we at the India Today Group, The purpose of this document is not to point fingers have put together our own recommendations for an at those who failed in Mumbai but to bring to the pub- action plan in the form of a White Paper. This is a logi- lic domain an agenda for action. The war on terror has cal extension of our ongoing campaign, Declare War on no expiry date and requires the general public’s Terror, in which we invited the public to send sugges- engagement. Public opinion is the greatest force for tions to a panel of experts on the best ways to tackle the change in a democracy and media. We can best growing terror threat. In order to make the campaign contribute by providing well informed proposals for more focused and comprehensive, our joint team of action. Hopefully, we have learnt our lessons from the editors drew up a list of 12 critical areas where we felt Mumbai tragedy and will make this country more major changes and modifications were required. secure for our future generations.

6 Guarding the 35 Megacity We need to build a security fortress around CONTENTS our major cities for any kind THE AGENDA of emergency Plugging From the 40 Vulnerable Zones Indian borders continue to be porous. Now 04 Editor-in-Chief with attacks even from the sea, we need watertight coastal security strategy

Securing the Toughening 07 Home Front 46 the Law Wanted: A revamp of the Home Ministry The legal framework of the country needs and a unified internal security set-up to to be hardened in order to make the guard India against major terror strikes perpetrators of terror pay heavily

Tackling Closing the 13 Pakistan 52 Terror Tap In its efforts to neutralise Pakistan, India Clamping down on the money flow that needs to use coercive diplomacy to mount nourishes the monster and keeping a close extreme pressure on multiple fronts watch on explosive substances is needed

Overhauling Be Fast 19 the Police 57 and Precise Our men in khaki need better equipment, training and motivation for them to India’s armed forces must modernise become weapons against terror and move to hi-tech precision strikes to take on non-state as well as traditional adversaries Modernising 25 the NSG Winning The Mumbai attacks exposed the 63 Kashmir inadequacies of our best anti-terror force. India needs to tackle the Valley’s discon- The shortfalls need to be addressed. Now. tent by winning hearts in Kashmir and countering the fundamentalist threat

Beefing up Be the 30 Intelligence 68 Change If terror strikes have to be thwarted, As citizens, we can help bring about the intelligence gathering and dissemination change we want by fulfilling our duties has to be coordinated and actionable and pressing the Government to deliver

2 3 1ISSUE THE AGENDA

SECURING THE Home Front

PRIME MINISTER MANMOHAN SINGH WITH HOME MINISTER CHIDAMBARAM (L)

REUTERS

Wanted: A revamp of the Home Ministry and a single, unified internal security set-up to guard India against major terror strikes

7 THE AGENDA

nion Minister of Home years, the ministry exemplifies mandate is to tackle insurgency in THE NORTH BLOCK THAT HOUSES THE UNION MINISTRY OF HOME AFFAIRS Affairs P. Chidambaram is what has gone wrong with the Jammu and Kashmir (J&K) as well acutely aware that he has country’s management of internal as the North-eastern states, Left very little time to deliver security. In the six months, pre- wing extremism, border manage- addressed urgently: Uwith the general elections ceding the Mumbai attacks, there ment, immigration, foreign fund- Streamline the Ministry: After due in May 2009. In a way it is for- were blasts in Delhi, Jaipur, ing, Centre-state relations, Union 9/11, the Bush administration de- tuitous because what India needs Bangalore, Ahmedabad and Territories, managing the Indian cided that what it needed was a hu- after the Mumbai attacks is action, Guwahati that killed 215 and in- Police Service (IPS) and Central mongous Homeland Security and fast. In the saddle for just over jured 1,000. Typically, after these paramilitary forces, police mod- Department that would, in the a month, Chidambaram, at a attacks, there were “security re- ernisation and policy planning. American President’s view, “make meeting of chief ministers on in- view” meetings which saw the Experts say, the ministry has over America safer because our nation ternal security on January 6, said buck being passed from one au- the years grown into a behemoth would have one department whose his immediate priority was to raise thority to another and no respon- and is difficult to manage, has primary mission is to protect the the level of preparedness to meet sibility being fixed. Routine alerts dragged its feet on key proposals American homeland.” Bush de- the increasingly sophisticated ter- were sent to states to tighten their like police modernisation, did cided that there would be only one rorist threats. Equally important security with no follow-up. nothing to sort out turf battles be- department that will secure was to enhance the speed and de- After Mumbai, it became evi- tween various intelligence agen- American borders, transport sec- cisiveness of the response to a ter- dent that the MHA had no option but cies both at the level of the Centre tor, ports and critical infrastruc- rorist threat or attack. to bring about a radical change in and the states and has failed to ture, apart from synthesising and Both these measures are the its approach. It has it hands in just come up with an effective anti-ter- analysing homeland security intel- key to inspiring confidence of the too many issues. Apart from inter- ror policy. Chidambaram has a ligence from multiple sources, country that has been severely nal security and terrorism, its whole host of issues that need to be training and equipping first re- punctured after the Mumbai at- sponders and managing a federal tacks. In the first flush of his emergency response. tenure, Chidambaram has moved Clearly, India can learn a lot swiftly to get a National Learning from the US from the American review of its Investigative Agency (NIA) set up to homeland security. Given that bu- investigate terror cases across the Mandate of the MHA US Homeland Security reaucracy tends to create more country and has also ensured India’s Ministry of Home In 2002, US President muddles in India, perhaps the solu- greater co-ordination and sharing Affairs has its finger in too George Bush created a tion lies in segregating the internal of information among intelligence many pies that make it highly single, unified Department security aspect from other func- agencies by reactivating the Multi- unwieldy and ineffective of Homeland Security to tions of the Home Ministry. The US Agency Centre (MAC) and making it against terror strikes. protect America. Homeland Security Department accountable. He has also made it does not deal with issues pertaining compulsory for top intelligence to police modernisation, procure- agencies to hold a meeting with the Among the MHA’s major tasks The new department has only ment and other executive work. So home minister everyday. His focus are law and order, four divisions with a clear it would probably help if there is a now is firmly on prevention police modernisation, focus: border and transporta- full-time cabinet minister to look through enhanced intelligence co- border management, tion security, emergency after internal security, segregated ordination and sharing. Centre-state relations, official preparedness and response, from the MHA. But even as Chidambaram gets languages policy apart from information analysis and Personnel Revamp: The cracking on the stiff agenda he has Jammu and Kashmir, North- infrastructure protection Government could start by looking set for himself and the east insurgency and Maoist and counter measures at the composition of those who Government, he needs to examine Extremism. against WMDs. head the Home Ministry. Of the the functioning of his Ministry eight special and additional secre- more closely. The Ministry of taries in the ministry, and 20 joint In 2008 alone, there were 64 Home Affairs (MHA) has to play a Since its formation, the US secretaries, only two are career terror attacks across India. pivotal role if the war on terror has faced no major terror strike. police officers. Starting from secre- to be won. But in the past few tary Madhukar Gupta, almost all in

8 9 THE AGENDA

key positions are IAS officers with no experience of handling security G.C. SAXENA K.P.S. GILL GOPAL SHARMA K SUBRAHMANYAM VED MARWAH K. PADMANABHAIAH issues. All officials handling key Expert desks, including Kashmir, the North-east, Naxals and Border Speak Former Former Former Former Former Management are administrative R&AW DGP DGP Security DG home service officers. Modernisation has chief Punjab J&K expert NSG secretary suffered because most officers handling the issue lack knowledge Former top T Single counter-terrorism T Create capacities for T The National ID card T A full time cabinet minis- T A National T MHA should also have its and field experience. The imbal- police officials centre that deals with in- decentralised Counter scheme should now be ter to look after internal Anti-Terrorism Agency on representatives in major ance needs to be urgently ad- telligence gathering, dis- Terrorism (CT) response implemented within security, which should be the lines of Homeland countries, similar to the dressed. The internal security and intelligence semination & coordination across the country the next six months segregated from the MHA Security in the US Defence Ministry division should be transformed experts want T Well-trained and T Create an effective T Federal coordination on T A director of national T Accountability has to T Ministry should have a into a body of experts capable of an overhaul equipped Quick Reaction security leadership at the real time basis of leads, intelligence to head a be fixed. No power or R&D wing and procure- dealing with terrorism, insurgency in the country’s Teams at vital installations field levels for independ- intelligence inputs, inter- super agency to monitor responsibility without ment officers should know and illegal infiltration. security and strategic locations ent CT responses rogations. Proactive NIA. and supervise all agencies accountability. about latest technology The MHA also needs to set the agenda on training of police per- T Using imaginative and T Establish institutions T Divide effort and localise T A dedicated cadre of T Special forces in all T MHA officers should sonnel and counter-terrorist (CT) innovative tactics to stay and training curricula for response to terror. Only officers who specialise in states like the Grey understand operational re- units. It can consider having a ahead of terrorists.A effective CT skills across state police can eliminate national security to be Hounds in Andhra Pradesh. quirements and be conver- trained commando of the army or platoon-sized unit is enough the security apparatus terror, so empower it. posted in key ministries Use NSG only for back-up. sant with field situations the Central paramilitary force to be a part of the ministry as an adviser. T Use technology as a force T Have an enveloping intel- T Bring in meritocracy, T NSA should coordinate T The National T MHA is the nodal agency multiplier—CCTVs, night ligence, strong local net- specialisation and and monitor on behalf of Investigative Agency of all paramilitary forces Being conversant with field situa- vision equipment—and works and effective covert enhance Special Task Cabinet Committee on must be given and should stress on their tions, he would bring with him a help from software experts capacities across borders Forces Security (CCS) more teeth modernisation better understanding of opera- tional requirements. He can also be T Need a clear-cut com- T Keep CT policies and T In the end, technology T CCS should be briefed T MHA officials should be T Tabs should be kept on mand structure so that responses free of partisan alone would give us the every fortnight about the given basic training in how the money for mod- tasked to devise a training curricu- leadership is purposeful political considerations edge, so use more modern intelligence situation for a policing, CT and ernisation of the police lum for the police forces in general and meaningful in a crisis and influence equipment and methods pre-emptive response internal security is spent by the states. and the anti-terrorist units in par- ticular to ensure a more effective response. There should be a proper coordination mechanism with the states to ensure that their police rorists have been using—has been which can identify and weed out il- government sources, the project is process, completely out of the forces. The MHA had set aside Rs forces are enhancing their training pending with the ministry for the legal immigrants. Starting in 2002, stuck due to turf wars among the ambit of political interference and 1,300 crore for the modernisation and tactics on a regular basis, right past five years. Similarly, the pro- attempts were made to issue ministries of information and tech- influence. Once issued, the identity of state police forces in 2008-09, to the level of the constable. posal for procuring high-resolu- Multipurpose National Identity nology, home and also the Election card should be treated as sacro- an amount that has nearly doubled Even the process of moderni- tion baggage screening equipment Cards (MNIC) to all bona fide citizens Commission. MNIC should be issued sanct and should be used to carry over the past five years. This sation has suffered because most for enhancing airport security has to enhance national security, man- to all citizens within a fixed time out all transactions, and the data- money is meant to be spent on bet- officers handling the issue in the not evinced any response from the age citizen identity and facilitate e- frame. It should be the primary base updated whenever the indi- ter mobility, modern weaponry, ministry lack knowledge and field ministry. Also pending is the re- governance. With an estimated document to prove identity, in- vidual shifts residence or job, communication system, training, experience. The result is that pro- quest for the purchase of parallel budget of Rs 5,000 crore then, the stead of a ration card, passport, something like the Social Security infrastructure facilities, forensic posals sent by various state police processor-type telecom monitor- Government has managed to issue driving licence or PAN card. card in the US. science facilities, strengthening of forces and Central police forces ing systems, which can keep track only 12 lakh identity cards in the However, complete caution Police modernisation: The intelligence branches, security are hardly treated with the neces- of 1,000-odd calls at one go, and first phase of the pilot project. needs to be exercised while issuing tardiness of the response of the po- equipment, construction of build- sary urgency. For example, the detect two or more cellphones These cards should serve as the the identity card. It should be done lice and security personnel was ev- ings of police stations, and con- proposal for Grade-4 bulletproof even if the carrier is mobile. primary document to prove iden- only after verifying the an- ident in the Mumbai attacks. What struction of residential buildings jackets—needed to face the bursts National ID card system: tity instead of a ration card, pass- tecedents and claims of the person is needed is urgent infusion of for lower level police personnel. from AK series rifles that the ter- There is still has no system in place port and others. According to thoroughly. It should be a foolproof funds to beef up the existing police The problem is that there is no

10 11 THE AGENDA

A COMMISSION OF INQUIRY SHOULD PROBE WHATWENT WRONG AND WHY THE MUMBAI ATTACKS COULD NOT BE PREVENTED. I

sponse of agencies and officials after the Mumbai terror attacks was typical—passing the buck among various agencies starting from the IB and R&AW to navy and A MULTIPURPOSE NATIONAL IDENTITY CARD SHOULD BE THE MAIN ID visit the states to see and inspect the coast guard. Till date it is still how the states have used their not certain who goofed up where. accountability on part of the states modernisation funds. This would By now, accountability should or, for that matter, the Centre. also introduce accountability at have been fixed and some heads There is no system of a follow-up the level of various secretaries and rolled. Ideally, there should have or to check what the states are joint secretaries of the ministry. been a time-bound commission of doing with the funds. The MHA Accountability: A foolproof inquiry—much like what the US should have an annual audit system of fixing responsibility did following 9/11—to probe what whereby senior officers personally needs be put in place. The re- went wrong and why the attack could not be prevented. Also, what measures need to be taken to pre- GET experts and career police officers,with vent such attacks. Not sparing anybody, the com- experience in security and counter-terrorism,to mission should push for action Action head crucial departments in the Home Ministry, against officials who were slack in Plan including the top job of the home secretary performing their duty. This would ACT on reports on police reforms and also cover all agencies including the IB, R&AW, Maharashtra Police, navy implement multipurpose national identity cards and the coast guard. Even politi- ENSURE co-ordination among intelligence agencies cians should be called in, if need and send a clear message that a terror strike must be be. The time has come to start tak- avoided at any cost or heads will roll ing punitive action against the guilty officers and bureaucrats, RED TAPE needs to be cut in making purchases for and that does not mean only a internal security transfer. What is needed is the Sword of Damocles to hang on the SACK top officials for negligence leading to terror strikes heads of bureaucrats—perform or SEGREGATE internal security from the other functions perish. Unless tough action is of the Home Ministry taken, the MHA will lurch from cri- sis to crisis and the Indian State would suffer.

12 2ISSUE THE AGENDA

TACKLING Pakistan

AFP

PAKISTAN PRESIDENT ASIF ALI ZARDARI WITH ARMY CHIEF ASHFAQ PARVEZ KAYANI

In its efforts to neutralise Pakistan, India needs to use coercive diplomacy to mount extreme pressure on multiple fronts. The buzz is ‘smart’ strategy.

13 THE AGENDA

Those who do not remember the main binding force for nation- Army’s credibility. Even though to hurt India but not enough for past are condemned to repeat it— hood, it left deep scars in the psy- Musharraf had to step down as New Delhi to declare war. George Santayana che of Pakistan. The humiliating army chief in 2007, the stain re- When targeting Kashmir THATDÈJÀ VU FEELING defeat of its army in the East at mained and, with the army con- alone didn’t have the desired im- The standoffs between India and Pakistan have istory has a tendency of the hands of the advancing trolling most of civilian pact, the terror strikes moved to always ended in a diplomatic truce repeating itself in rela- Indian forces, the sundering of governance, inefficiencies and the rest of India where it not only tions between India and East Pakistan and the formation worse corruption had become the attacked religious shrines but Pakistan—too often for of Bangladesh saw revenge be- order of the day. also hit at its economic interests. 2001 After the attack on the Indian Parliament by Pakistan-based comfort. In just 16 years, coming a leitmotif of Pakistan, es- Meanwhile, the US had As Prime Minister Manmohan terrorists, India mounted its biggest-ever deployment of forces H against Pakistan known as Operation Parakram, which ended after the two countries have had five pecially for its armed forces. stepped up pressure to fight an Singh pointed out recently, “Pak- 10 months when the US made Pakistan take some cosmetic major confrontations, including More so recently when India unpopular war on the Afghan istan has utilised terror as an in- measures to check cross-border terrorism. the one developing over Mumbai with its phenomenal GDP growth front to subdue the Taliban. It strument of state policy.” Outcome The standoff cost India Rs 6,500 crore and Pakistan 26/11. These have either brought has emerged as a major power in was viewed by Pakistan’s Mumbai 26/11 is now increas- Rs 4,500 crore. While the exercise was aimed at putting diplomatic them close to war or resulted in a the region with even the US want- people as an American war ingly being seen as a diabolical pressure on Pakistan, it failed to achieve its purpose. sharp border conflict as in Kargil. ing an enhanced strategic rela- against their Islamist brethren. plan of the Pakistan Army which 1999 India launched Operation Vijay to drive out Pakistani troops The core issue had been Kash- tionship with it. In sharp contrast, For the first time in its history the served several ends. If India camouflaged as militants that had intruded into Indian territory. mir for many years and, more re- Pakistan’s economy is in sham- Pakistan Army had desertions ratcheted up the war rhetoric, as Outcome As the threat of escalation grew and with clinching cently, because of the spread of bles, it is riven with internal dis- from its ranks. it initially did, it gave the Pakistan evidence that Pakistani regulars were involved, the US summoned Islamic fundamentalism it has sent and sectarian warfare and is Mumbai 26/11 was an asser- Army an excuse to start moving Pakistan prime minister Nawaz Sharif to Washington and asked him to withdraw the infiltrating forces. taken on religious undertones too. a haven for Islamic terror groups. tion of the Pakistan Army’s new 1,00,000 soldiers from the Kashmir, in many ways, had be- The Pakistan Army, which di- gameplan to grab centrestage and Afghan front and pitting them come a proxy for the larger ideo- rectly ruled the country through restore its supremacy. Targeting against India. That would also see logical battle that resulted in the dictatorships for more than half India is a tried and tested way for the people bind strongly behind Partition. The Indian nation with of its 61 years of existence, was the Pakistan Army. It launched its the army, marginalising the new its secular, democratic foundation being reviled by its own populace. “war of thousand cuts” to bleed democratic coalitions holding has always been anathema to a Former president Pervez India in 1990, the year it acquired power. It would propel to the fore- Pakistan that projects itself as Musharraf’s brazen attempt to nuclear weapons capability. That front Pakistan Army Chief Gen- an Islamic Republic. muzzle the judiciary and the as- development saw India’s over- eral Ashfaq Parvez Kayani who If the 1971 war settled the sassination of Benazir Bhutto had whelming superiority in conven- could even stage a bloodless question of religion being the a direct impact on the Pakistan tional warfare being nullified and coup, if he so decided. It would the confidence that a full-scale also unite the country against a

SOLDIERS ON PATROL ALONG war is almost ruled out as it was common enemy and hopefully the THE INDIA-PAKISTAN BORDER certain to take on nuclear dimen- separatists and sectarian forces sions. So Pakistan began its low- would cool down. intensity warfare that did enough The Pakistan Army operates with such brazen confidence be- 1990 India and Pakistan engaged in an intense crisis over growing cause it knows that India would terrorism in Kashmir. While Islamabad stepped up its support to mili- hesitate to use the military option tants, temperatures rose, and the Indian and Pakistani militaries were THE INTERNATIONAL because of the nuclear shadow. In partially mobilised amid nuclear threats from Pakistan. COMMUNITY the midst of the gravest provoca- Outcome The two sides backed off following the twin restraints of SHOULD BE TOLD IF tion following the border intru- nuclear deterrence and US intervention. sions in the Kargil sector, India THEY DON’T GET 1987 New Delhi and Islamabad were enmeshed in a long crisis chose to fight a limited war to emanating from India’s Brass Tacks military exercises and Pakistan’s PAKISTAN TO ACT evict the intruders from the threat of nuclear attack. It set off a chain reaction of military deploy- AGAINSTTHE TERROR heights rather than launch an ment by both sides along the border and almost sparked a war. NETWORK, INDIAWILL. assault on its western borders. Outcome As tensions increased, the hot line between the two Even after the attack on Parlia- countries was activated. In February 1987,Pakistan’s President General Zia ul Haq travelled to India, on the pretext of watching I ment in 2001, India hesitated al- a cricket match, where he held talks with the Indian leadership to though it launched Operation SHAILESH RAVAL defuse the crisis.

14 15 THE AGENDA

Parakram—the largest ever mil- What the current situation trends in Pakistan-occupied community to bring the Lashkar strength on the Indian border, but strategy to mount a sustained itary build-up on the borders. Af- calls for is a similar massive effort Kashmir. Even if it does not en- chief to book over the Mumbai at- keeps the Afghan mercenaries global campaign has not worked ter a 10-month standoff, India with a clear end goal in sight. If gage in covert operations to tacks, even seek his extradition to away from Kashmir. so far. India needs to play a and its prime minister Atal Bihari the 1971 objective was to dis- destabilise Pakistan, it could use America first and then to India. G Make the fight against terror- leadership role in creating aware- Vajpayee backed off and resumed member Pakistan then the 2009 diplomatic channels to highlight India could also push for the ar- ism the core issue: Providing ness about the scourge of terror- peace talks with Pakistan. gameplan should be to neutralise the human right violations as rest and extradition of Dawood diplomatic teeth to India’s terror ism. There is a need for a change Nor has coercive diplomacy Pakistan so that it can no longer Islamabad does over Kashmir. Ibrahim—a third country in the campaign is essential for India to of gears and terrorism should not borne much fruit. After the Par- pose a threat to India. G Drive a wedge between the Gulf could be used to facilitate it. keep the focused international be a mere footnote in joint state- liament attacks, to avoid a con- The buzzword is ‘smart’ strat- Army and jehadis: It must cease- G Keep Pakistan engaged in bat- attention on combating terror- ments or policy statements. It flict with India, president egy that calls for India to work on lessly build international pres- tling the Taliban: It must ism. While India introduced a should be at the top of India’s Musharraf promised to rein in the multiple pressure points to force sure to get the Pakistan Army to allow Pakistan to continue to bat- comprehensive convention on diplomatic focus. With this as the jehadis. But within months, they Pakistan into taking action to dis- act against jehadis. For a while, tle on the Afghan front and work international terrorism at the UN central focus, we should also resumed operations under differ- mantle its extensive terror net- Musharraf had become the towards ensuring a stable in 1996, not enough diplomatic make use of the available instru- ent names. Only now, they began work. So India must work on target of the jehadis though the Afghanistan that does not bring efforts were made to make it a ments like the SAARC convention of targeting Musharraf too. In 2002, several fronts at the same time. Lashkar-e-Toiba scrupulously back the Taliban of yore. Getting central issue. Similarly despite terrorism to put pressure on India had broken off diplomatic G Support Pakistan’s democratic kept out of such attacks. Now In- the Pakistan Army to fight there having almost two dozen joint Pakistan and Bangladesh to hand relations and banned all civilian forces: It must work to dia should get the international not only depletes its force working groups on terrorism, our over wanted fugitives to India. flights coming in from Pakistan. It strengthen the civilian demo- also cut off economic and cultural cratic set up and contain the ties. But that would soon prove influence of the Pakistan counterproductive and, after a Army over governance. Expert M.K. RASGOTRA LALIT MANSINGH KANWAL SIBAL G. PARTHASARATHY BRAHMA CHELLANEY year or so, diplomatic relations That must mean buffering were restored. up the current political Speak After the Mumbai attacks In- combinations and engaging Former Former Former Former dia is now in the unenviable posi- them in a dialogue even while Foreign Foreign Foreign Envoy to Strategic tion of being reduced to a binary warning them of the conse- Secretary Secretary Secretary Pakistan Analyst option: launch a limited war that quences of doing nothing. Seasoned could escalate into a nuclear con- Democracies have a way of diplomats T We have to tell the T Sustained diplomacy T We have handed over the T Pakistan is waging a low T To regard terrorism as a flict and bring international in- making nations benign as it has and strategic Pakistanis firmly that we and not any military strike initiative to third parties intensity conflict. We need law-and-order problem is tervention or watch with done with India. analysts are not going to take this is the answer. We may that may not be able to de- to build covert capabilities to do what the terrorists know the location of ter- increasing frustration as Pak- G Highlight Pakistan’s internal offer their lying down.At the moment liver, as they have much in Pakistan and mount a want—to sap your we are talking too much rorist camps but a surgical larger geostrategic inter- psychological war.We strength. Between the two istan denies every charge being divisions: India has never really views on in different voices from strike may not prevent ests in Pakistan. We must should not shy away from extremes—continuing in- made against it and does nothing fully utilised the divisions in how to put South Block each another attack. Besides ask the US to benchmark political destabilisation action and military against terrorism. Pakistan to prove gross human pressure on Pakistan contradicting the other there is a risk of collateral Pakistan on action against and inflicting economic strikes—lie a hundred op- There are lessons that India right violations in Baluchistan and the impression that is damage with a nuclear- terrorism and insist on a damage to Pakistan. We tions, including diplo- should learn from the 1971 con- and also encourage separatist gaining ground is that it is armed country. Pakistan timeframe.At the Friends should stop dialogue and matic, economic and flict that was a result of careful simply verbal anger.We is in a financial mess, of Pakistan meeting later make it clear that we re- political actions. Israel's strategy and planning which in- need to demonstrate President Zardari has this month we should en- serve the right to pay heavy response to how- cluded major diplomatic ma- firmness and prepared- asked for a huge bailout. sure that all economic as- them back in the same ever small a provocation noeuvres (the Indo-Soviet Treaty INDIA NEEDS TO ness for action. We should We should ask the interna- sistance becomes coin.A major change in and India's non-response signed to neutralise American in- KEEP PAKISTAN try diplomacy but must tional community to tie conditional. The compos- our Afghan policy will also to frontal attacks on its this aid to Pakistan fluence in the region), covert op- ENGAGED IN make it clear to the inter- ite dialogue and joint ter- help.The time has come security make these national community that dismantling the terror ror mechanism should be for us to say that countries polar opposites. erations (the support to the Mukti BATTLING TALIBAN if they fail to discipline infrastructure. It can be scrapped. We should con- Pakistan’s border with Yet, as the international Bahini in East Pakistan) and FORCES. ITTAKES Pakistan we will do it. followed with a trade sider trade sanctions, Afghanistan is disputed; reaction to Mumbai and army preparedness (the decision PRESSURE OFF However, we have to do it sanction. We may also withdrawal of the high we should frame our pol- Gaza illustrates, it is the to strike in winter when China on our own, no third coun- start a global campaign commissioner and discon- icy taking into account the meek that get counselled could not open another front on JAMMU & KASHMIR. try is going to pull out our to designate Pakistan a tinuing sporting and peo- aspirations of Afghan peo- while the intrepid wage India’s border because of adverse chestnuts from the fire. terrorist state. ple-to-people contacts. ple on the Durand Line. action unhindered. weather conditions). I

16 THE AGENDA

G Tying economic ties to are required to ensure that progress on terrorism: checks and balances are in place There should be enough MOUNT a sus- to monitor those who guard the levers like the eco- tained diplomatic borders to ensure that corruption nomic ones for India Action campaign to build in their ranks can be checked. to use. India contin- international Satellite monitored sensors need ues to give Pakistan Plan pressure,espe- to be installed along the sensitive the most favoured na- cially from the infiltration points on the India- tion status for trade de- Pakistan border and the India- spite lack of reciprocity. It US,by providing Bangladesh border to begin with, should discontinue this and also evidence of Pakistan’s which can be followed up with the use international pressure to stop complicity.The message border with Nepal. aid from international financial must go out: if they fail G Stringent visa screening institutions to countries like to bring Pakistan around, procedures: India needs to put in Pakistan that are seen as spon- India is ready for war. place a state-of-the-art visa sors of terrorism. screening system at all its foreign G Effective border management EXPLOIT the divisions missions to ensure that those ap- policy: The real problem for India within Pakistan and plying for visas can be screened. is that in the absence of an effec- expose its weaknesses In fact, a common database can tive border management policy, in Baluchistan,the FATA be shared with other countries to infiltration of terrorists becomes check the credentials of a visa ap- much easier. For the 3,325-km and PoK.Drive a wedge plicant to weed out the suspected India-Pakistan border, sensors between the army and categories. To prevent corruption are needed to be installed to the jehadis.Also win in issuance of visas the Govern- check infiltration. In fact, as part over the moderate ment needs to have a monitoring of its new strategy to increase de- democratic forces. mechanism in place with tough niability, the ISI is trying to ensure punishment. An example of the that terrorists are sent through EXPLORE a range of laxity is that India issued over third countries like Nepal and diplomatic and economic 70,000 visit visas to Pakistani na- Bangladesh where the borders sanctions,including tionals to visit. Many thousands are completely porous. There withdrawing most did not return. needs to be enhanced surveil- favoured nation status, G Making preparations for a lim- lance and better intelligence ited military strike: If all peace- along the border and at border scrapping the joint ful measures fail to bring check posts. Special provisions terror mechanism and Pakistan around, India should keeping on hold sports consider various scenarios—lim- and cultural links. ited strikes or the possibility of a full-scale military confrontation. SET a timeline for That involves boosting intelli- INDIA MUST Pakistan to dismantle STRATEGISE WHAT gence so that if India hits a terror infrastructure. terrorist leader, Pakistan would KIND OF PAKISTAN Use legal instruments be under tremendous pressure ITWANTS AND WORK such as the SAARC from the international commu- SYSTEMATICALLY convention on terrorism nity to restrain its response. It’s TO ACHIEVE to extradite the perpetra- an option fraught with risks for THATGOAL. India but something that Delhi tors of Mumbai 26/11. must keep open. Pakistan must I know that if there is another ter- rorist strike, it would mean war.

18 3ISSUE THE AGENDA

OVERHAULING The Police

MUMBAI’S POLICEMEN DURING THE 26/11 ATTACKS

AFP

There’s an urgent need to change the image and the status of the men in khaki for them to become weapons against terror

19 THE AGENDA

rom its introduction into a house of cards. As security departments like intelligence are A constable is the first line of defence the British Empire in experts will tell you, you cannot not only understaffed but also Constabulary is the Key 1895—just two years have a first class counter-terror- treated as dumping grounds for and often the weakest link in the chain before the completion of the ism response within a third class undesirable officers or merely Education A constable is required Numbers Constables form over F Victoria Terminus station, police force. used as tools to collect information to have just a high school certificate 87 per cent of the police force now the Chhatrapati Shivaji India’s police forces are grossly on political adversaries. and account for the largest number of Terminus—right up to the time understaffed. The country has one The forces don’t have modern Salary Paid between Rs 3,200 and vacancies Rs 4,900, around that of a semi- when it gave way to self-loading ri- of the lowest policemen per popu- weapons, communication sets or skilled worker Meagre metro allowance fles in the 1960s, the .303 lation ratio in the world, just 142 vehicles, no personal protection He is expected to live with his family in Lee-Enfield rifle was an out- per lakh people compared to the like bullet-proof jackets and Promotion He can expect only a metro with a meagre allowance like one promotion in his lifetime and Rs 100 in New Delhi standing weapon. ratio of 250 per lakh in the helmets and, worse, no specialised generally retires as a head constable. Today, this antique rifle which western countries. The 40,000- teams to deal with heavy assaults. Can never hope to rise to station Short of leave Shortage of has to be manually loaded after strong Mumbai police force is In India’s Silicon Valley, house officer (SHO). unfilled vacancies means that constables cannot take frequent leave, each shot, and is standard issue short by 15 per cent of its man- Bangalore most police stations No application of mind All in- and suffer from physical and psycho- for India’s policemen symbolises power. This is the case in most function from rented places and vestigative powers are with the SHO logical exhaustion the asymmetry between them and metros. Policemen are inade- some of them are not big enough leaving the constable as an automa- ton carrying out orders with no per- Poor equipment No personal the terrorists they must face: an quately trained and crucial to even have lock-ups or stock sonal initiative. Emphasis on brawn protection during riots or terror ageing, outmoding weapon pitted weapons. The seven police sta- rather than brain dehumanises him. strikes. Policemen use obsolete against the AK-47 that can spit tions in the north-east division of weapons and rarely get to Orderly system Constables also fire them. 30 bullets in one automatic burst. Bangalore including the New serve in homes of senior officials as Locomotives of India’s growth INDIA HAS ONE OF International Airport, lack full staff domestic servants further erodes Housing facility He has to live story, the six metros are magnets THE LOWEST RATIOS and infrastructure. One station their self-esteem in rented accommodation in big cities. for investment and prime targets OF POLICEMEN TO sub-inspector, for example, has for terrorists. Booming growth just 28 policemen to look after an Constables Sub Inspectors Dy SPs has outstripped investment in POPULATION IN THE area that consists of nearly 100 in- ALLINDIAVACANCIES 1.13 Lakh 18,654 2,099 security infrastructure over the WORLD,ATJUSTTHREE dustries, commercial establish- years, with the police force having PER 2,000, LESS THAN ments spread over nearly 30 Courtesy: Ministry of Home Affairs been nibbled away by corruption HALFTHE NUMBER villages. At any given time at least and systemic neglect. When faced five of them should be in the police URGENTLY NEEDED COMPARED TO THE US. 1 lakh automatic with a threat like urban terrorism station and just 24 of them cannot 1 lakh Level III 1 lakh Kevlar carbines to replace like in Mumbai, it collapses like I be manning the entire area. Some bullet-proof jacket helmets .303 / SLR rifles stations don’t have wireless gadg- Rs 300 crore Rs 100 crore Rs 5,000 crore AP PHOTO/CHANNI ANAND ets. Some don’t have staff to pre- pare charge-sheets on time and if charge-sheets are not filed within State-wise Police-to-Population Ratio Police-to-Population Ratio in 90 days for lack of staff, it creates Select Countries legal problems. Country Police per lakh There is also an asymmetry Population between the Centre and states when it comes to technology and India 142 fighting terror. Part of this has to Japan 175 do with the legacy of the 1980s UK 200 where terror was essentially Germany 300 confined to north India—Punjab, Jammu and Kashmir and Australia 290 USA 315 l i t Delhi. The Home Ministry created r a a u h P K a

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a one-stop shop to deal with hi- a a K y T h

jackings, bomb threats and urban d a Graphic by PRASHANT CHAUDHARY M 20 21 THE AGENDA

assaults. With terrorism spreading and Veerappa Moily have said re- Besides equipping them to use into the hinterland, as it has over peated ad nauseum. “It would be modern weapons, the training Expert the last three years, and the new prudent for the policy makers to physically conditions them, sharp- Speak spectre of suicide commandos, realise that the present-day chal- ens their reflexes and trains them metro police forces have been lenge to internal security, espe- to take the initiative in ambushes. Security experts offer an insight into what can be done to ensure greater safety caught unprepared. cially those posed by covert The results are there to see. A Metros are now abjectly de- designs of Pakistan’s ISI or Maoist- kill ratio of five policemen for PRAKASH SINGH T Immediate T Stop using po- T Special Weapons T Beefing up of T Effective control pendent on distantly located forces Marxist extremist groups are of every Naxalite has been reversed filling up of lice force to pro- And Tactics (SWAT) intelligence at the rooms in all cities like the NSG not only for the Special such a nature that to meet them to one policeman for five Naxalites vacancies in tect criminal teams should be state and district to ensure a Force personnel but also for bomb meaningfully and effectively, the in three years. The Home police force -politicians. It has set up in all level. Focus on three-minute squads and post-blast forensic in- country needs a highly motivated, Ministry’s plan to set up 20 such a criminalising ef- metros humint rather response time. Former fect on the police. than techint. vestigations. Thanks to the short professionally-skilled, infrastruc- schools all over the country is DG, BSF shrift given to training and a short- turally self-sufficient and sophisti- a vindication of the need for such age of ammunition, even the catedly trained police force,” the a reorientation. JULIO RIBEIRO T Leaders should T The Government T Senior officers T The investigation T Public participa- mandatory annual firing given to Padmanabhaiah Committee noted An ideal place to begin would be carefully se- must exercise All should be given agency should be tion in policing. policemen is not insisted upon and presciently in 2000. be the police control room, per- lected from a list India Service Rul- operational separated from the People who are of empanelled of- es to prevent inef- freedom law and order non-political should sometimes a police constable can Two years ago, the Second haps the most overlooked aspect of ficers whose reco- ficient men from machinery interact with the go through his career without fir- Administrative Commission metro policing. In military strategy Former DGP, rds are monitored rising to the top police. and business parlance the Punjab Observe-Orient-Decide-Act or the REUTERS OODA loop is said to be the most crit- AJAY SAHNI T Invest in polic- T Utilise existing T Massive man- T Intelligence T Technical ical aspect of a fast unfolding situ- THE FORCES DON’T ing as a planned capacities more power augmenta- capacities within capabilities of the ation: an entity that could take a ED, outlay. Power, and efficiently by re- tion to bring the state police internal security HAVE MODERN quick decision could rapidly out- Centre accountability training and rede- police-population must be estab- apparatus must be WEAPONS,VEHICLES pace their opponents. for must be ploying the force ratios in line with lished to secure brought in line with Conflict AND PERSONAL Police control rooms need to be Studies augmented. in the states required norms full coverage global standards. PROTECTION LIKE immediately upgraded into large BULLETPROOFJACKETS military-like command and AJAY RAJ SHARMA T Retrain the T Restoration of T Metros to have T Upgrade T Tough laws like communication hubs equipped police force for the beat system to anti-terror cell community MCOCA and fast AND HELMETS. Former with secure communication, Com- terrorism and ensure grassroots with twin tasks of policing by track courts to phones, faxes and the Internet. mis- internal security intelligence investigation and increasing police- deal with cases of I They should be linked with other sioner, duties undertaking com- public interface terrorism. Delhi mando operations armed forces, intelligence agen- Police ing a single shot. Even funds are headed by Veerappa Moily noted cies and receive feeds from CCTVs left unutilised. For instance, in that inadequate training and all across the city. These control T A federal agency T For any contin- T The leader of T New senior posts T A specialised 2006-07, states spent just over 60 infrastructure for the police rooms are meant to feed decision- ARVIND INAMDAR to offer intelli- gency, the police the police force should be created, force like the ATS per cent of liberal Central grants, was one of a dozen weaknesses in makers with all the inputs to form gence to key force should be should only be a pay scales should should be allowed returning unspent money even as the legal framework. a rapid picture of an emerging Former states is the need strengthened so person who has acknowledge the to investigate mat- the backlog of basic equipment To see the difference training situation and thereby plan DGP, of the hour that the army hands-on experi- work of the con- ters in a free and like X-ray machines, modern and infrastructure can make to the speedy responses. Maha- rashtra needn’t step in ence of policing stabulary fair manner. weapons and communication police force, one has to visit the These control rooms need to be tools, piled up. Counter Terrorism and Jungle manned round-the-clock by BRIG. B.K. T Policemen have T Trained in reflex T Replace old T Improve police T Introduce cou- There is little that has not been Warfare School at Kanker in energetic officers with rapid PONWAR to be combatised. shooting for a rifles with modern leadership at rse in counter-ter- already said about the crying need Chhattisgarh where state police- decision-making ability. These Their physical counter-terrorism carbines like the the ASI, SI and rorism and jungle to reform the police force. At least men undergo a six-month course control rooms, which could fitness has to environment MP-5 SP level warfare at Nati- five police reform committees which completely reorients them become hubs of security forces Director, be raised. onal Police Acad- since 1998 headed by Julio from law and order policy into of- in a crisis, should have large CTJWS, emy, Hyderabad Kanker Ribeiro, Justice Malimath, fensive counter insurgency and Google Earth-like digital map Padmanabhaiah, Soli Sorabjee counter-Naxalite operations. projections of the city and a fleet of

22 23 THE AGENDA

fast police cars capable of reaching any trouble spot in the city within five minutes. CONTROL rooms manned round-the-clock by ener- Trained and heav- getic young officers.And a fleet of police vehicles to ily armed Special Action ensure one reaches the scene of an incident in less Weapons and Tactics than five minutes. (SWAT) teams of around Plan 100 personnel with SWAT teams of 100 men in each city capable of with- special weapons, com- standing heavy assaults,hostage situations and munication devices, ar- building intervention.City SWATteams to be given combat moured vehicles and helicopters experience with the army in counter-insurgency operations should be immediately raised in all in J&K and the North-East. the major metros to ensure quick reaction teams for 24x7 INCREASE in manpower.Filling up of vacant posts. emergencies. They should not be SETTING up intelligence analysis units,to be manned round- diverted for VIP security, a trap that the-clock to sift through intelligence inputs most similarly raised elite forces usually fall into. BETTER training for all personnel.Frequent access to There are quick wins to re- police firing ranges placing the vintage rifles. Ever since the CRPF and the BSF switched TRAINED in on-ground operational exercises for high over to the INSAS rifles a few years building interventions in various actual locations like malls, ago, over five lakh SLRs are lying multiplexes and hotels unused in their armories. The ALL POLICE units in cities to be given at least two twin- Home Ministry can immediately hand these guns over to the metro engine transport helicopters for swift deployment of police forces. New technology like personnel in an emergency facial recognition software and day-night CCTV cameras needs to be embraced fast to plug in the gaps wherever possible. identify major landmarks and not offices must be kept by the police Police forces in metros must fill only guard them but also regularly to help plan for eventualities like vacancies and begin reorienting practise counter-terrorism drills in hostage situations. The police their personnel in basic anti-terror them. Digital blueprints of all force must also identify and train and first-aid drills. Buying com- major landmarks including hotels, its officers to act as negotiators. munications equipment and wea- IT parks, shopping malls and large Negotiators fulfil a vital function of ponry off-the-shelf is only one part allowing the security forces to buy of the challenge—cutting through time and assess the vulnerabilities bureaucratic red tape to spend of their opponents. money in time will prove to be a far POLICE FORCES IN Intelligence branches need to greater one. That’s not all. METROS MUST FILL be staffed with career officers. Training a policeman to use VACANCIES AND There’s a need to create intellige- modern weapons is another BEGIN REORIENTING nce analysis units dedicated to challenge because an untrained analysing inputs received from policeman armed with a THEIR PERSONNEL IN state and Central intelligence sophisticated Heckler and Koch BASIC ANTI-TERROR agencies. Not being proactive on MP-5 sub-machine gun is as good AND FIRST-AID DRILLS. policing will prove to be an invita- as unarmed. tion to terrorists to strike at our Another measure would be to I engines of growth.

24 4ISSUE THE AGENDA MODERNISING The NSG

NSG PERSONNEL RAPPEL DOWN FROM AN IAF HELICOPTER

AP

The Mumbai attacks exposed the inadequacies of our best anti-terror force. The shortfalls need to be addressed. Now.

25 THE AGENDA

hey called it the National It’s a sad tale of neglect that has Mumbai they were operationally Security Guard (NSG) when brought the nation’s top-notch deployed after six long years. WHATTHE NSG LACKS RADAR imaging equipment to see the force was raised on the fighting force to this pass. The gov- Even the equipment procured through walls, listening devices to detect movement. Anti-material lines of Germany’s GSG-9 ernment’s apathy towards the NSG is not in sync with the nature of the India’s elite anti-terror force has a long way to go rifles to penetrate them. Tand Britain’s famed SAS 25 is appalling. Equipment, man- assigned task. The 51 SAG is a spe- before it can join the list of the world’s best years ago to be India’s elite anti-hi- power, training—you name it, and cialised force to combat terror and BETTER situational awareness jacking, anti-terror and bomb dis- the NSG is lagging behind. The lar- rescue people under very restric- WEAPONRY is archaic. The rubber-soled tactical footwear. equipment like radio sets with in- posal force. Today, it is better ger part of their equipment is age- tive settings of ‘urban warfare’, NSG doesn’t not have Cornershot built GPS chips to enable squadron/ CAMERAS worn on body to known as a force that provides se- ing. Despite being authorised for what is called a ‘troop intensive’ guns and low-recoil rockets which team leaders to control operations in are a must for urban restrictive capture images of the operation multiple corridors curity cover to VVIPs and is beset many years, the sniper rifle that SAG and ‘high casualty’ approach in warfare. There is an urgent need to and relay them real-time to the with the usual problems that uses, the Heckler and Koch PSG1, contrast to the army where ‘de- upgrade the H&K PSG1 sniper rifles operations commander. SMALL or medium explosive India’s uniformed personnel have have not been replaced or up- struction is a prime method to gain and HE-36 hand grenades. LIGHT bulletproof vests (Level 3) charges to blast holes in walls and remained mired in for decades. graded since NSG inception. In con- supremacy’. “But the NSG has same to protect against AK-47 rounds; blow up locks for strategic entries The Mumbai attacks put the trast, Germany’s GSG-9 uses latest equipment as army commandos. TRANSPORT is pathetic; the bulletproof helmets with in-built focus back on NSG’s preparedness versions of the weapons and up- Ask them (MHA) how much have force does not have a dedicated communication devices to allow MOBILE command posts for and capabilities. Though it is on grades it routinely. they spent on our equipment?” plane or armoured vehicles for oper- handsfree operation; Night vision instantly setting up communication ations in an urban environment stand-by, NSG took 12 hours to Basic equipment like collapsi- says a senior NSG personnel. goggles are also missing. and command posts on site reach Mumbai’s terror hotspots. ble ladders have been authorised Factor inordinate delays in FIRE and tear resistant Nomex FREEFALL parachutes for COLLAPSIBLE and light metal Once there, the limitations in their for purchase but not procured as procurement and the dismal pic- clothing is missing. No basics like dropping commandos at specific ladders for better manoeuverability equipment and training were felt yet. That’s one thing that com- ture is complete. The pending list blastproof eyewear, Kevlar tactical locations during open-country and hydraulic rams for building inter- at every step during the operation. mandos missed in Mumbai. The of demands include specialised gloves, elbow and knee pads or even operations. vention are also unavailable Set up in 1986, the NSG comes HE-36 hand grenades are of World boots for desert, water, jungle and under the Ministry of Home Affairs War II fame; even the army uses stealth operations, and knee and (MHA) and draws men from both technologically better versions. elbow supports in the overalls that demand for better helmets was as the internal security division More than 600 hostages were the army and Central paramilitary One reason for such apathy could commandos wear. NSG men are made three years ago but the ones does not deal with the police while rescued in 48 hours during the forces. Its counter-terror arm, the be what NSG officers say—out of clothed in cotton for all seasons, we got are heavy, uncomfortable the police division does not deal Mumbai operation and eight well- SAG, or rather 51 SAG as the unit is sight, out of mind. Unlike other while specialised forces in other and can’t resist the high-velocity with police modernisation and trained and equipped terrorists called, is manned entirely by army paramilitary forces, the NSG is countries use fireproof clothing. bullets that terrorists use,” says an procurement. Then how can a were ‘taken out’ in a highly re- personnel, and so is the 52 SAG, the pressed into action only in an Bulletproof combat helmets NSG major. “Who should be decid- fractured ministry assure internal strictive urban environment, anti-hijack squad. emergency situation, like in that are now available have visual ing what to buy? We, who put our security? It seems to have an under live media coverage, with image display and night vision. life on the firing line, or the MHA, explanation: the NSG is a smaller two NSG casualties. But the NSG They are light and equipped with a that has neither the expertise nor force compared to other paramili- officers are disturbed over the voice recognition microphone for the willingness?” he adds. tary forces like the BSF and sellers ‘avoidable delay’ in reaching the effective communication but the The bulletproof jackets used may not be in a position to supply scene, saying, “That happens NSG still doesn’t have them. “The are heavy, restrictive and of the small quantities, so the NSG de- when you do not have proper re- same quality as provided to other mand has to be clubbed with wish- sponse mechanism in place and its paramilitary forces. Another NSG list of other forces. But that cannot ramifications were felt during the major says, “We would have saved be the reason for not acting, given operation.” But the Government is A SPECIAL FORCE both our men in Mumbai opera- that former home minister Shivraj silent over the delay and the NSG is LIKE THE NSG tions if we had state-of-the-art Patil promised on the 23rd Raising not supposed to divulge much. SHOULD BE KEPT equipment.” That’s a serious alle- Day parade of the NSG in October Also, the force does not have gation but the MHA exudes familiar 2007, “We have to simplify the pro- an aircraft at its disposal. Though UPGRADED IN TERMS bureaucratic apathy. “Why would cedure for buying arms and other it carried out a seven-day exercise OF EQUIPMENTAND any official go out of way to secure equipment for various forces so with the Indian Air Force in March TRAINING BUTTHAT speedy procurement? It is inter- that they are fully equipped. Times last year with emphasis on “swift IS NOT HAPPENING. preted as the vested interest of the are changing and the challenges deployment”, but when the time AN NSG COMMANDO DURING THE officer dealing the matter,” says a are new. We cannot let our forces came to deliver, it just didn’t work NARIMAN HOUSE OPERATION I joint secretary of the ministry. lag behind terrorists.” But the NSG out. Some NSG officers say the The MHA quagmire doesn’t help continues to lag. plane, an IL-76, that brought 51

26 27 THE AGENDA Expert

The NSG commandos spearheading the Mumbai Speak SAG personnel to Mumbai had to operation suffered because of poor equipment and wait for some VVIPs who weaponry. Here is what needs to be done. were to travel on the SETTING up a ‘Special Operations Command’on same flight. “You can the lines of the US or Israeli model with its own dedi- check the flight record Action cated aircraft,helicopter in readiness COL. CHOUDHARY T The biggest mis- T There is no coor- T The Mumbai T With very seniors T Unlike the case to know where the take was to transfer dination between operation was officers around, with NSG, the SPEEDY task-based procurement of equipment and plane was when it was Plan NSG to the Home the Central intelli- carried out like an operational com- Special Group called for service,” says weaponry for NSG,like it is done with RAW,IB and the Trained Ministry which gence agencies, infantry operation manders cannot had an earmarked Special Protection Group,should not be clubbed with the now causes like RAW and IB, with no prior have free hand in plane, an AN 12, a senior NSG officer, rub- first lot bureaucratic delays and NSG. gameplan for it operations in readiness bishing that the plane was the general procurement for other paramilitary forces of NSG not available in Delhi. The NSG also COUNTER-TERROR operation in a built-up urban environ- suffers from around 50 and 20 per T.R. KAKKAR T In India, the NSG T Equipping and T The procure- T The force is not T Interaction with ment is a highly specialised military task which calls for is not allowed to upgrading a spe- ment process is so used too often. similiar foreign cent vacancies in its SRG and SAG perform clinically cial force like the slow that some- It is important agencies like the wings respectively. During the intensive training in real situations and a lot of interaction like a special NSG is a constant thing that should that it is regularly Mossad is not Mumbai operation, the 51 SAG fell with such parallel forces across the world force.They do not process that may take three months deployed in actual happening at the short of the numbers and 52 SAG Former BALANCED command and control is needed.Counter-terror DG, have the freedom. not be happening takes seven years situations. desired levels was summoned for reinforcement. NSG This raises another question: If a and anti-hijack units are manned only by army commandos similar attack was simultaneously but the DG,IG and DIG are IPS officers with little experience MAJ. GEN. DATTA T Only volunteers T Stringent selec- T Need for a per- T Regular deploy- T Need for con- carried out at some other place, in counter-insurgency and counter-terror operations. who undertake tion procedures manent nucleus ment in counter stant upgrada- what would the response be? “We GREATER and frequent operational deployment of the NSG Part of hazardous mis- should be followed of 25 per cent of insurgency opera- tion of equipment don’t have an answer,” says a the sions in the SAG as laid down in the personnel to tions in Jammu & to keep it at par lt-colonel of the NSG. in real situations is required.The Mumbai operation came Special should be allowed qualitative ensure combat Kashmir and North- with international The Home Ministry has al- six years after the Akshardham operation in 2002. Group to join requirements skills are not lost east combat trends team ready decided to set up regional COMING up of regional centres should not lead to the force NSG centres at Kolkata, Hyderabad being spread too thin,simultaneously ensuring that the MAJ. GEN. BAKSHI T We need a cen- T To transform the T The operational T The emphasis T CT operations and Mumbai or Nagpur. But tralised special NSG, we need to employment has on the VIP protec- in an urban envi- sourcing the required 4,000 men required additional 4,000 men are inducted following the operations com- have a more ratio- been very spora- tion need to be ronment is a spe- Former from the army and other Central selection procedures laid down in qualitative requirements mand which has nalised command dic. NSG’s last hived off and be cialised task GOC paramilitary forces for these cen- Romeo its own air and and control for deployment was in given a special carried out by Force, naval components better operations Akshardham in ’02. police orientation military forces tres is another challenge for the J&K MHA. The army is already grap- pling with a shortage of soldiers very inward looking with no new squads from other countries or ARUN BHAGAT T The Mumbai T The response T Slow procure- T The live cover- T Equipment is and sources say it will be difficult ideas being inducted by interact- else NSG operations would be pre- operation was has to be quicker ment is an issue. age of the Mumbai another issue. to provide manpower on that ing and learning from the experi- dictable like it happened in long drawn in such contin- The need of the operation was Electronic equip- scale. However, Home Minister P. ences of specialised anti-terror Mumbai. An NSG officer says, “In and the fatigue gency situations hour is to carry objectionable. ment would have Chidambaram is optimistic and Mumbai operation, the terrorists Former element would where time is the this out fast and Somebody should nullified in this says the army chief didn’t express knew how we operate. That’s why IB have set in key element transparently have taken a call. environment chief any inability to help set up new NSG they could hold us for so long.” hubs, though he did emphasise SETTING UP OF There is movement on that front as R.S. MOOSHAHARY T The NSG should T The police com- T NSG hubs should T Mock drills T The training the need to draw more people into REGIONAL CENTRES well. Talks are in progress with exclusively be ponent should be be set up at care- should be con- techniques NSG and train them. IS AGOOD STEP BUT Germany’s GSG-9 to help upgrade used for anti- specially trained fully chosen cities, ducted at regular should be up- “We are constantly redesigning the NSG and train it better. terror operations so that it can be- especially in the intervals to keep dated and should SOURCING THE Former courses with changing situations. This is a wake-up call from the DG, and not for VVIP come a full-fledged south, west and the force in fight- include Metro REQUIRED MEN FROM Lessons from Mumbai have al- members of disgruntled force that BSF and protection duties anti-terror outfit eastern regions ing condition (train) drills NSG ready been incorporated in our OTHER FORCES WILL cannot be ignored. The NSG is the training drills,” says a senior officer BE A CHALLENGE. sword arm of the nation’s war on dealing with training. However, in- terror and it’s got to be sharp, and siders agree that the training is I more than ever before.

28 29 5ISSUE THE AGENDA

hen P. Chidambaram took over as home LOST IN THE MAZE minister in the wake BEEFING UP of the Mumbai at- India’s intelligence establishment features Wtacks, he felt the key an alphabet soup of agencies, which operate to raising the level of preparedness was in gathering and sharing of in silos and have little accountability Intelligence intelligence. But he was in for a shock when he reviewed the state NATIONAL SECURITY ADVISER of India’s intelligence gathering. The multiplicity of organisations He is the single point security adviser to SIPRA DAS involved in intelligence gathering the PM. Most of the intelligence agencies, refused to share the information including RAW, IB and NTRO, report to him. despite the establishment of a M.K. NARAYANAN Multi-Agency Centre (MAC) to act as a nodal point as far back as 2001. RESEARCH AND INTELLIGENCE NATIONAL Most agencies hadn’t even appoin- ANALYSIS WING BUREAU TECHNICAL ted their representatives to the India’s external Internal security RESEARCH ORGANISATION Centre. So among the first things intelligence agency. organisation. Collects informa- Repository of all elec- he did was to make the MAC func- Also has the Aviation Research tion on terrorist tronic and technical tion on a 24x7 basis and made it Centre (ARC). organisations. intelligence . legal requirement for it to share in- telligence with all other agencies, both at the Centre and in states. That would be among the many shortcomings that Chidambaram would rapidly have ASHOK CHATURVEDI RAJIV MATHUR K.V.S.S. PRASAD RAO to fill. Like in every other thing, MULTI-AGENCY NATIONAL India has not learnt its lessons. The CENTRE INVESTIGATION AGENCY Kargil Review Committee, which Intelligence-sharing forum Central body to investigate all went into the massive failure of established in 2001 but terror related cases across the intelligence that saw Pakistani revitalised only after 26/11 country. Has been set up this intruders take the mountain Mumbai attacks with control month. It will also have the room and mandatory power to prosecute but no heights without the Indian Army intelligence sharing. control over intelligence. knowing, stated: “There is no institutionalised mechanism for NATIONAL JOINT NATIONAL coordination or objective-oriented SECURITY COUNCIL INTELLIGENCE SECURITY interaction between intelligence Apex agency for COUNCIL ADVISORY BOARD agencies and consumers at differ- national security. Headed by one of Multidisciplinary the deputy NSAs. ent levels. Similarly, there is no Functions as NSA’s body set up to provide secretariat. Has three Analyses intelligence the NSC with long- mechanism for tasking the agen- VIP SE SECURITYCURITY deputy NSAs. from all agencies. term analysis. PERPERSONNELSONNEL cies, monitoring their perform- ance and reviewing their records. DEFENCE DEPARTMENT STATE Nor is there any oversight of the INTELLIGENCE OF REVENUE INTELLIGENCE overall functioning of the agen- AGENCY INTELLIGENCE BUREAUS cies.” Despite its report, reform in Collates the armed Functions under the Eyes and ears of the If terror strikes have to be thwarted, intelligence intelligence agencies was slow in forces’ intelligence to re- Finance Ministry. state government and duce their dependence Tracks violation police. Are understaf- coming. So we had Mumbai 26/11. gathering has to be coordinated and actionable on Central agencies. of fiscal laws. fed and underfunded. The problem is that nearly a

30 31 THE AGENDA

dozen Indian intelligence agencies from various organisations, but POLICE CONTROL ROOMS NEED TO BE clude the development of effective MODERNISED DESPERATELY operate side-by-side in silos where never did so. Like the MAC, it be- covert capabilities to undermine intelligence follows a down-up came another well-intentioned name of the R&AW mole within terrorist networks and their sup- approach. The agencies rarely body that turned into a parking slot Pakistan’s nuclear weapons pro- port establishment—state and ever communicate and jealously for government officials. gramme and later, recalled R&AW non-state—in the neighbourhood. guard their turf. In Jammu and The R&AW was set up four dec- operatives from that country. Its To avoid any turf wars among Kashmir, one intelligence opera- ades ago on the lines of the CIA—an covert capability, which took over a agencies and make coordination tive says, it had the unintentionally eclectic collection of experts from decade to re-establish inside easier, there is an urgent need for hilarious consequences of one in- various fields and by the late 1970s Pakistan, was abruptly terminated convergence of all available intelli- former blithely taking payments had even penetrated Pakistan’s on the orders of then prime minis- gence. The Government must work from the Intelligence Bureau (IB), nascent nuclear weapons pro- ter I.K. Gujral in 1996. The organ- towards development of a Central Research and Analysis Wing gramme. R&AW has languished isation needs to be revived with database of intelligence inputs (R&AW), BSF and Military Intel- from an inability of the chief exec- officers posted as per their capa- which can be accessible to all ligence for providing the same in- utives to understand the vital role bilities and interests. R&AW also intelligence units . This is both for formation: he was unlikely to ever played by intelligence. Nearly needs to adopt a more proactive current information and past get caught because he knew nei- three decades ago, prime minister approach in operations overseas. records which are very essential to ther agency spoke to each other. Morarji Desai told General Zia the The external mandate must in- study behavioural patterns of The National Technical Research Organisation (NTRO), India’s premier technical snooping agency, is jokingly called the Expert R.S. BEDI VIKRAM SOOD A.S. DULAT A.K. VERMA B. RAMAN AJIT DOVAL National Tired and Retired Organisation. Obdurate govern- Speak ment norms mean the NTRO can hire Former Former Former Former only retired personnel for its top NTRO R&AW R&AW R&AW Security Former posts. It has no spy planes because Chief Chief Chief Chief Analyst IB Chief of a turf war with R&AW, and today its hapless state personifies every- Seasoned T Implement all the T Remedying the agencies T More than coordination, T Executive order, to give T Revise the charters of IB T It is not coordination but findings of the Kargil won’t work unless the sys- the problem is of the focus intelligence agencies a and R&AW, and upgrade convergence of intelligence thing that is wrong with the intelli- spies offer Review Committee’s task tem is fixed to curtail wast- of intelligence.Tackling ter- legal sanction and legal the priority for collection of that is required.The system gence set-up. A national their force on intelligence. age of collected information. ror should be the priority. cover for operatives. terror-related intelligence. should be so connected that information repository exchange, a viewpoints if a terrorist is being interro- Wikipedia for Indian spooks, was on the vital T Create a national T Set out a long-term road T Vacancies in the T Greater autonomy in T Set up a common data- gated in Jaipur, whatever he shot down because one of the agen- information repository map with clear targets to intelligence agencies functioning for agencies. base on terror-related intel- issue of says should be available to cies refused to share information. exchange to pool intelligence revitalise the nation’s need to be filled up on Every other reform will ligence to be coordinated all concerned. Every bit of The Joint Intelligence Council (JIC) revamping for all security agencies. espionage set-up. a priority basis. follow from this. and supervised by IB. information should be was set up to collate the intelligence India’s collected and put into the intelligence T Make a single agency T Hire the best talent— T Human intelligence T Parliamentary oversight T Set up a similar common domain with due systems of responsible for analysing linguists, domain has to be improved to by a select committee database relating to ac- filters and firewalls. system and fusing intelligence specialists—from the corroborate technical with impeccable tion taken by all agencies from various sources. open market. intelligence. credentials. on the intelligence inputs. THE SYSTEM SHOULD T A Central intelligence BE SO CONNECTED cadre of officers should be T This one agency should T The agencies must T The quality of agents T Provide greater incen- T Integrate all technical set up which will be THATIFATERRORIST IS be held accountable focus on human intelli- and assets on the ground tives for personnel to join facilities available with the unified above the rank of BEING INTERROGATED for the holistic analysis gence and make it a needs to be hugely the agency. Recruit from agencies for the collection joint secretary with it would provide. long-term commitment. improved. the open market. of technical intelligence. IN JAIPUR,WHATEVER inter-intelligence HE SAYS SHOULD BE T Move forces, act pre- T Strong leadership is T The agencies need to T Supervisory authority T Set up a common pool postings.The chief of an AVAILABLE TO ALL. emptively on intelligence needed but it should be more proactive and to enforce coordination of terrorism experts agency should be a person inputs without waiting for emerge from within not wait for intelligence between the various available in different who has done a stint in I “actionable intelligence”. the organisation. to fall into their laps. intelligence agencies. agencies. the other agency too.

32 THE AGENDA

insurgent activities over time. gence with human aspect not being The “Gary” Saxena RECRUIT at least paid too much importance. Efforts Committee on intelli- to infiltrate terrorist outfits need to gence revamp had rec- 6,000 more spies be intensified. This is not to say that ommended that at Action to the IB within technical intelligence should be ig- least 30,000 personnel Plan the next three nored. In fact, the country should be engaged in field duty months. make use of the best available in the IB. The actual brains in the country—even if they facts, however, are shock- REVIVE covert are outside the government—to ing. The total strength of the IB operations by R&AW upgrade cyber intelligence. is 25,000, of which almost one- and IB for them to infil- To improve intelligence at all third comprise drivers, peons, ad- trate terrorist networks. levels, innovative ideas need to be ministrative and secretarial staff. infused in the system. The re- The field strength is 3,500, of which MAKE all the information sponse of intelligence agencies is a large number is engaged in polit- given by intelligence becoming predictable. So while ical intelligence. In a country with agencies actionable and the terrorists keep changing their 1.2 billion people, it is likely to be accountable by grading modus operandi and technology, near ineffectual. There is an urgent the inputs.For this, the intelligence officials have re- need to get at least 6,000 more establish standard main boxed in with their old bu- spies within the next three months. reaucratised way of thinking. The While talking of intelligence parameters to facilitate capability to surprise and also gathering agencies the impor- rating of information. deter the terrorist is missing. tance of the local police, especially DEVELOP a central Another important aspect of the beat constable, cannot be database of inputs enhancing intelligence is ensuring undermined. He is the most crucial that existing agencies work to their link in the chain since he is the one which can be accessible optimum. In addition to filling up who has greatest interface with to all intelligence units vacant posts—both, in administra- the people. The local police and its and be a reservoir for tion and field—it is imperative that intelligence units need to be beefed information. these agencies have the best up for better and grounded people and technology. information. Men from the local STRENGTHEN the With enhanced capabilities in police station should be encour- intelligence gathering terms of human and technical in- aged to go out in plainclothes and ability of the local telligence, the next step is to en- mingle with the people. police stations. sure that all intelligence is made Over the years, the focus has actionable. Standard parameters shifted more on technical intelli- EQUIP intelligence must be established to grade the agencies the army—for quality of intelligence inputs from a 24x7 readiness for sources on the basis of credibility a covert battle. and effectiveness. The inputs from THE LOCAL POLICE sources need to be graded as per STATION IS THE REVISE the charters those parameters. The informa- BEST SOURCE OF of the IB and the tion or inputs that rate very high INFORMATION AND IT R&AWand upgrade should be fed simultaneously at a the priority for the central pool of information to NEEDS TO BE ATTHE facilitate sharing of information CENTRE OFTHE collection of terrorism- related intelligence. across agencies. Beefing up India’s INTELLIGENCE SET-UP. intelligence capability is vital if we have to gain the upper hand in the I war on terror.

34 6ISSUE THE AGENDA

GUARDING THE Megacity

RAF PERSONNEL ON GUARD OUTSIDE MUMBAI’S TAJ HOTEL

SHRIYA PATIL SHINDE

Build a security fortress around Delhi and Mumbai so that they are capable of tackling any kind of emergency independently

35 THE AGENDA

error, said that merchant any other Indian metro and is THE MUMBAI POLICE IS GETTING BY WITH A 15 PER CENT SHORTFALL IN MEN of death Adolf Hitler, was surrounded by equally crowded the war of the future, its urban hubs that call for compli- tivated, well-equipped and re- aim to demoralise the cated policing. For example, a warded. Setting up and readying a Tenemy from within. That floating working force of 9 per cent team of a minimum of 100 men, future has arrived and India’s (just over one million people) en- will take no more than six months. cities today have become the ters and leaves Delhi every day. Similarly, the investigation ma- frontlines of that war. The overall press of their pop- chinery of the city police must be Now, urban India carries with ulation (Mumbai’s population den- separated from the general law it an unspoken, perennial dread sity is 29,042 people per sq km and and order ranks in order to ensure about where the next unexpected Delhi’s 9,294 people per sq km) is speedier crime-detection, investi- but all too predictable strike will too large for their undermanned gation and conviction. The setting occur. It unconsciously readies and demotivated police forces. up of a centralised command cen- itself to absorb this next blow. Mumbai’s 40,000-man police force tre and a specific chain of com- This is a numbing fatalism, born works with 15 per cent vacancies. mand in case of a terrorist attack out of the truth left that lingers If, for example, every Mumbai is of paramount importance given after 26/11: that India’s Urbs policeman due for some leave was the chaos that followed in the first Prima—and India itself—could be given a single day off, one-seventh few hours of Mumbai. These con- held hostage for 60 hours by 10 of the force would be off duty. trol rooms should be seamlessly men. If it can happen to Mumbai There is also no hiding from integrated with an intelligent traf- then, the thinking goes, then the fact that the image of the police fic management network (said to everyone is vulnerable. in both cities has hit rock bottom, be put in place in Delhi by the time Of all the Indian metros, it is and is salvaged only by the deeds of the 2010 Commonwealth Mumbai and Delhi that are prized of a few of its most brave. For the Games) to track suspicious move- targets for terror. They are India’s rest, the proximity of the police ment and pre-empt aggressors. two leading “megacities”, the term force to the political establishment The Mumbai attacks also used to describe those cities with a of both cities is now widely recog- demonstrated with disturbing bru- population of above 10 million. nised as a corrupting influence tality the damage that can be Something other than popula- which has had its impact on the caused by a lack of intelligence in- tion size makes Mumbai and performance of the police and its tegration. After every terrorist MANDAR DEODHAR Delhi the most vulnerable of our public image. The Mumbai Police’s strike, the state police and the metros. It is what they stand for. reputation for neutrality and it has managed to recover that of miles from those borders. The of defence so that the second need Intelligence Bureau (IB) indulge in Delhi is its power and the heft of the efficiency took a severe beating precious lost ground. Government only soldiers our city possesses are never step in.” petty, unseemly shadow-boxing. state, Mumbai, its wealth and during the Mumbai riots of 1992- interference in postings have led to its policemen and Mumbai sent The key to understanding, de- The leaks information about its worldly confidence. India needs to 93, and is highly doubtful whether police being used by their “godfa- them into battle with .303 rifles tecting, pre-empting and respond- “alerts” to the media while the show that it can protect these two thers” in the administration to and lathis against machine guns. ing to terror will come from a states maintained they did not nerve centres of its democracy or it determine what the thoroughness Our megacities must now be- specialised compartmentalisation receive “actionable” information. will convince few, least of all its en- of any investigation. come virtual fortresses. They must and separation of the task from This has to stop. emies, that it has the will and the re- ESTABLISH SPECIAL Yet, acceptance of this desul- turn into citadels constructed other aspects of policing the The police are the executives of sources to safeguard its democracy. WEAPONS AND tory status quo is not an option for brick-by-brick from the on-ground megacity. It is imperative to create the security machinery and ac- The challenges of securing TACTICS TEAMS IN India. These are not the medieval intelligence of the beat-constable a state-level or even a megacity- countable to our legal system (nei- Mumbai and Delhi in an age of ages, where a city protects itself by and fortified further by technology, centric fighting force comprising ther the IB nor the R&AW are), a fact terror are doubled by geography CITIES TO ENSURE pulling up a drawbridge, shuts the in weapons, surveillance and in- armed police, trained and re- that must be respected. For their and demographics. Both cities THERE IS NO WAIT gate and send its soldiers up to the vestigation equipment. As Arvind served only to tackle combat situ- part, the police need to work cover large areas, Mumbai’s 468 FOR THE NSG IN top of its walls, armed with boiling Inamdar, former Maharashtra DGP, ations. Former Maharashtra DGP greater contact with other depart- sq km compounded by a 560-km EMERGENCIES. oil. The megacity’s borders keep puts it, “For any contingency situ- D.S. Soman explains, “The reflexes ments like customs, income tax and long statewide coastline that leads expanding and it must counter ation the police are the first line of of a civil police and an NSG like body intelligence departments. Infor- to its door. Delhi’s 1,483 sq km con- I enemies whose motivations rise defence and the army is the last. are totally different.” This force mation about offenders caught by tains more high-value targets than from events taking place hundreds One should strengthen the first line needs to be highly trained and mo- customs or IT departments must be

36 37 THE AGENDA

Expert shared with the police. Both Speak Mumbai and Delhi have ac- CREATE a city-level force comprising armed police, Former policemen’s views on improving megacity surveillance tive crime syndicates and the link between organ- trained and reserved only for combat situations. ised crime, money-laun- Action SEPARATE and compartmentalise the understand- D.S. SOMAN T T T T T A special force Every year, at An IPS officer More modern Revive the dering and terrorism has Plan ing,detecting,pre-empting and responding to ter- should be set up on least a week-long should be higher equipment and dismantled crime been all too clearly estab- the lines of NSG as training workshop than home secre- weapons are and special lished. The security agen- ror from other aspects of policing the megacity. the reflexes of civil should be organ- tary.All postings required. But every branches.The Former cies’ shadow-boxing, police and NSG are ised for all men should be done by policeman should informer network PETTY shadow-boxing after every terror strike DGP, turf-protection that follows an Maha- totally different. and officers. the commissioner. not be armed. needs revival too. between the state police and the IB must stop.There is a rashtra attack is in real terms an abdication of responsibility and a dereliction of need for greater intelligence integration. T Creation of a T Identify 50 vulner- T Technology T Proposals sent T There should be Y.C. PAWAR their national duty. special strike able points. Each driven systems from the home a clear leadership. IDENTIFY and move to protect the most vulnerable spots At ground zero, a primary com- force which is should have teams like GPS and department must Dual leadership in a city,including putting them under CCTVsurveillance. Former reserved only of five officers avail- satellite systems be discussed and leads of confusion ponent of megacity policing is the Joint immediate identification of the 50 Com- for tackling able for security should be manned cleared with and conflict of ESTABLISH a centralised control room to monitor mis- emergencies. round-the-clock. by trained people. immediate effect. egos and interest. most vulnerable spots in a city, giv- suspicious activity. sioner ing clarity and focus to the security forces. These would include her- THERE is a growing need on the police’s part to work in a ARVIND INAMDAR T Setting up a T Police are the first T The police force T New senior posts T State ATS units itage buildings, government and greater contact with other departments like income tax, federal agency line of defence.It should be led by should be created should be allowed corporate offices, airports, railway customs and intelligence. to offer intelli- should be strength- someone who in the force. Pay to investigate in a stations, hospitals, hotels. Teams of Former gence to key ened so that the has a hands-on scales should ack- free and fair five officers should be deployed BEEF up basic policing by reviving and strengthening the DGP, states is the second doesn’t experience of nowledge the con- manner as it is round the clock for each spot. Maha- need of the hour. need to step in. policing. stabulary’s work. better equipped. informer network.It is more effective than upgrading rashtra A clear and frequent chain of communication needs to be estab- technology or increasing weaponry. V. RANGANATHAN T It is high time T Deployment of T The coastline T Maharashtra T Various state lished between the regular ranks REVITALISE the mohalla committees in Mumbai and make that political men should be should be manned must have a spe- agencies should of police and local security agen- the Delhi RWAs more proactive in their own security. Former interference in done effectively. by separate coastal cially trained strike work together and cies involved in protecting high- Chief postings and Better training and harbour police. force. Its absence information must Secre- density targets like cinema halls, transfers should will increase Set up a village has crippled the be shared on a tary, malls, banquet halls. Liaising with be stopped. their efficiency. defence force. civil police. real time basis. Maha- traders’ co-operatives and housing ing the informer network that had specific and specialised response. rashtra societies in Mumbai and RWAs in given Mumbai’s police its formida- Soman suggests that the state home JULIO RIBEIRO T Leaders must be T Make proper use of T Leaders should T The investiga- T There should be Delhi is also a key component of the ble reputation and efficiency rate. secretary must come from ranks of selected from a the All India Service be given freedom tion agency people in every police on-the-ground contact between Funds must be specially allocated to the IPS rather than the IAS, given his list of empanelled Rule which says that to transfer to should be station who are non- citizens and the men in uniform. pay those informers. Revitalising experience in the security arena. officers whose government can get post people separated from political and publi- Former Delhi police commis- the mohalla committees in Mumbai These largely common sense Former records are moni- rid of officers after according to their the law and order cally accepted to sioner Arun Bhagat believes “beef- (actively undermined by a former measures will only work if applied DGP, tored and verified. 20 years of service. capabilities. machinery. interact with the cops. Punjab ing up basic policing” is more joint commissioner of police no less) swiftly. As late as November 2008, effective than upgrading technol- and making RWAs in Delhi more senior home ministry officials were V. BALACHANDRAN T Federal Police, an T Setting up intelli- T Establish city T A“national T Evolving new ogy or increasing weaponry. Each proactive in their own security will asked how a megacity policing idea languishing gence integration special weapons alignment” of ter- modus operandi to police station can selectively train fill in the gaps for the local police. scheme introduced in 2005-06 Former in files since 2001, centres whereby and tactics teams to rorist methodol- prevent further at- a few men to wield weapons. There is another radical solu- could be fast-tracked. Just over Special is desperately Central agencies ensure that one ogy by central and tacks like 26/11 London provides the best example tion that may exacerbate the al- three weeks later, 10 terrorists Secre- needed in the can disseminate in- needn’t wait for NSG state police needs just like it has been of proactive policing, where even ready-frosty relations between the held India’s most mega of cities in tary, Indian context. puts to other units. in emergencies. be set up too. done in the US. R&AW after the July 2005 bombings, only state home departments and the a death grip for 60 hours. All rea- 10 per cent of the metropolitan police force but could certainly ful- sons, valid or otherwise, for delays police routinely carry arms. fill the essential premise of this in securing our megacities have “Basic policing” involves reviv- plan: that a specific threat needs a just been vapourised.

38 39 7ISSUE THE AGENDA

hat India is a maritime na- prosperity were ajar, unpatrolled tion is a truism. But it and unpoliced with even the MUMBAI’S LARGELY UNGUARDED SEAFRONT WAS AN OPEN INVITATION TO THE TERRORISTS ON 26/11 needs frequent repetition world’s fifth-largest navy and coast because of the sea blind- guard and a theoretical marine po- Tness that afflicts us after lice not adding up to much. centuries of looking out towards The terrorists had easily pen- our land borders. We have a legacy etrated a twin layer of security— of over a millennium of invaders the shoreline up to 12 nautical pouring in across the land fron- miles patrolled by the state po- tiers. Even today, India has unre- lice, 12 to 200 nautical miles po- solved borders with three of its six liced by the Indian Coast Guard. neighbours through which infiltra- This was because these two agen- tion, and not trade, takes place. cies simply did not have the assets These contested borders not only to patrol the vast coastline. The drain national security resources marine police, a concept estab- but fill our mindspace. It is, how- lished after the 1993 Mumbai se- ever, the 7,600-km coastline that rial blasts for which explosives holds the key to the nation’s pros- were smuggled in via the sea, is perity. The 13 major ports and 183 yet to take off in the nine coastal minor ports—maritime gateways states. This is not only due to the to 90 per cent of India’s trade by recalcitrance of authorities to in- volume and 75 per cent by cost and vest resources in policing the all its imported crude oil— are the coast. Maharashtra, for instance, maritime gateways without which has just six speedboats, some of India’s economic miracle would which are deliberately sabotaged not have been able to get off the by the police to avoid patrols that ground. Sixty-six per cent of induce sea-sickness. Clearly, an- India’s domestic crude comes from other case of policemen being de- the sea. India is the third-largest ployed for tasks they are not fish producing nation in the world, trained for. Other states like Ker- with over three lakh fishing boats. ala and Karnataka make do by There is thus an inextricable hiring slow-moving fishing ves- link between our maritime com- sels. Again, random patrolling merce, maritime security, national does not make sense because prosperity and national security. policing the coast is totally differ- This link was fiendishly exploited ent from policing a land frontier. on November 26 by the terrorists India’s exclusive economic zone who sailed into India’s economic is larger than its land mass and capital using a commandeered policing it is not easy. A conven- AP PHOTO/GAUTAM SINGH) fishing trawler to wreak havoc tional “checknaka” concept of over three days. It was economic putting a police barrier across a terrorism at its worst. The targets road does not work here because Indian borders continue to be chosen were not only geographi- of the size of the sea. PLUGGING porous.With attacks from the cally disparate but from diverse The threat from the sea is sea posing the latest threat, sectors—tourism, hospitality, enormous and multifarious. The economy, diplomatic relations and spate of pirate attacks off the there’s a need for watertight investor confidence. It also coast of Somalia has shown just Vulnerable Zones coastal security strategy. brought to the fore a cruel conun- how simple it is for a boatload of drum—the gateways to India’s armed miscreants to hijack a ship

40 41 THE AGENDA

PRASHANT CHAUDHARY the size of a supertanker. A single toms, coast guard and immigra- cargo ship with 40,000 tonnes of tion services—into a sensory FORCE LEVEL REQUIRED a fertiliser like ammonium ni- web called MDA. It would know CENTRAL INDUSTRIAL SECURITY FORCE (CISF) Has CHINKS IN 1,00,000 men.Needs 20,000 more trate has the potency of a 40-kilo- about the location of every single NEPAL 1,690-km porous ton nuclear weapon or nearly boat, vessel and aircraft ap- THE ARMOUR border is the new route for BORDER SECURITY FORCE (BSF) Has 157 battalions. twice the size of the bombs proaching the US territory. Pakistani infiltrators Needs 26 more battalions in the short term.Needs 69 A look at the more battalions to reduce present 4.5-km gap be- dropped on Hiroshima and Na- Much like the concept of an air tween border posts to 2.5 km. gasaki. Blowing up a hijacked traffic control (ATC) where all air- gaps in India’s COAST GUARD Has just 14 ships and eight Dornier ship of this size at the Jawaharlal craft appear as blips on the border policing patrol aircraft for the 3,300-km west coast.Needs at Nehru Port Trust (JNPT) could de- radar with all their parame- least 30 more ships and 30 more aircraft.Needs stroy the gateway through which ters—range, bearing, speed and INDIA sanction for more manpower. ATC over half of India’s container traf- identity—that allow authori- N BANGLADESH 1,500 km of border with Bangladesh yet

fic flows and cripple the economy ties to manage air traffic. A to be fenced.Amajor infiltration and smuggling route. PAKISTAN 408 km of 2,308-km for months. A similar concept could work T S border yet to be fenced What is needed is a concept for the coastline. Most ports and I INFRASTRUCTURE PROTECTION called Maritime Domain Aware- ships are already fitted with Ves- K DATALINKS Coast Guard SECURITY EVALUATION No government agency A and Navy’s operational rooms ness (MDA) which emerged in the sel Traffic Management System to lay down or monitor security standards for P not connected US after the 9/11 attacks. The facilities which are used by har- private industry. Department of Homeland Secu- bour control authorities. In addi- LAX SECURITY Only basic security.No audits. rity knitted all US assets—cus- tion there are several other Private sector extremely vulnerable to terror attacks. INFRASTRUCTURE, PUBLIC AS WELL AS measures including the Auto- PRIVATE, NEEDS RIGOROUS POLICING matic Identification System which

work up to 100 nautical miles planned, they would need over and Long-Range Identification 10,000 personnel in a year. An and Tracking Systems, which ideal place to look for them would work up to 700 nautical miles. be in the ranks of retired sailors. Another priority is to equip guard ships than the Indian Navy Each year, over 5,000 sailors re- India’s fleet of fishing trawlers and Coast Guard put together. tire, a majority of them in their with beacons developed by the The coast guard needs to be aug- late 30s and all of them trained Indian Space Research Organi- mented by at least four times of for nearly two decades in mar- sation. These beacons can not its present strength if it is to be itime skills that would be a requi- only be used as a distress call but truly effective in guarding the In- site for the marine police force. also to transmit the position of dian coastline. As the state- The Government should consider the fishing vessel, allowing agen- owned shipyards are unable to re-employing retired naval per- cies like the marine police to deliver platforms in reasonable sonnel into marine police units in monitor their movement. A net- time spans for reasons of ineffi- the coastal states. work of surveillance radars can ciency and limited size, the Gov- India shares 3,323 km of bor- keep track of suspicious activity ernment must encourage the der with Pakistan, including the on the coast. The Indian Coast setting up of private sector ship- disputed Line of Control. Of the Guard, which patrols the belt of yards which can deliver these total 2,308 km of border that needs Indian territorial waters from 12 vessels over the next five years. to be fenced, about 1,900 km has to 200 nautical miles has a fleet While the platforms can be been done, but only 1,800 km has of just 74 ships, 44 aircraft and bought or wet-leased, institutions been floodlit. With Bangladesh— 8,000 men for the task. It sounds and trained manpower cannot be another infiltration prone area— impressive but to illustrate how rolled out overnight. Back of the India shares more than 4,000 km inadequate this is, take South Ko- envelope calculations show that if of a highly porous border but only rea. It’s a country the size of all the nine coastal states were to 2,500 km is fenced. Even out of

BHASKAR PAUL Chhattisgarh and has more coast raise marine police units as is this, 861 km needs to be replaced

42 43 THE AGENDA Expert Speak A lowdown on what can be done to ensure sound border security state’s busiest port cities, Manga- lore, has a little more than a dozen poorly BORDER fencing to be completed on priority. ADMIRAL ARUN T New coastal T Marine police T Automatic T Maritime T Seamless PRAKASH command should force should be electronic trans- Commission to integration of the equipped and lowly VACANCIES in CISF and BSFto be augmented to be under the naval set up for shore ponders be in- coordinate between armed forces paid police constables Action enhance border protection and security of public Former commands and and inshore stalled on all fish- various ministries with the Ministry to patrol a 60-km and private infrastructure projects. chief of must coordinate patrolling of the ing vessels above and liaise with the of Defence must stretch. With no Plan naval with other agencies. coastal areas. a certain size. armed forces. be ensured. speedboats or even MAJOR vital installations to be identified and staff high-speed vehicles, protected and technology to be used to cut manpower. VICE ADMIRAL T Funding for an T Hiring retired T Single window, T Anti-piracy T Vessel Traffic they have to travel by pub- A.K. SINGH Indian Maritime sailors to man accountable and devices on Indian Management lic transport such as buses. SECURITY engineering to be made mandatory for all Domain Aware- the CISF harbour professional ships to prevent Systems for all Further inland from the vul- projects before clearances are issued. ness Grid should patrols be consid- National Maritime their hijacking Indian ports nerable coast is India’s eggshell former COASTAL Command and the Central Maritime Adviser be facilitated at ered for augment- Adviser to head and use against should be in place DG, fragile infrastructure. Its poten- must liaise with the eight ministries that look after coast the earliest. ing the forces. Maritime Agency. Indian ports. at the earliest. tial unlocked by liberalisation, Guard the country’s economy has ush- maritime issues. SIS AHMED ered in an era of investments T Vulnerability T Make security T Regulatory T Induction of T Increase and industrial growth. But the assessments for engineering agencies for technology to security at infrastructure in the world’s rorists are not only trained in, of the critical national infrastruc- all major private mandatory. No infrastructure substitute ports as they second fastest growing economy but have meticulously recced, ture in the US. No such collabo- former sector as well as permissions be projects, like BCAS manpower need to be as has virtually no investment in se- their targets like IT parks and ration on security engineering DG public sector given unless a for civil aviation wherever secure as CISF, projects. project is secured. security. possible. airports. curity. Before a businessman can ports to paralyse the nation’s exists at present in India and this CRPF lay the first brick on his power critical infrastructure vital to is one gap that needs to be plant, shopping mall or multi- national security, governance, plugged immediately. The Central E.N. RAMMOHAN T Seal the Nepal, T Induct more T Border villages T Political T Constantly mon- plex, he has to go through a public health and safety, econ- Industrial Security Force (CISF), Bangladesh and shallow draught to be cleared and interference in itor all cellphone Pakistan borders vessels for the resited behind the border fencing as and satellite sheaf of elaborate guidelines omy and national morale. for instance, guards most Central and place them coast guard to fence. BSF to be is happening in phone conversa- and obtain multiple clearances Since 9/11, the US Depart- government infrastructure, in- under electronic patrol closer to allowed to patrol West Bengal tions in neigh- from local town planning and ment of Homeland Security has cluding airports and power plants Former surveillance. the shore. the zero line. must be halted. bouring nations. fire authorities. made critical infrastructure pro- and religious institutions like the DG, Except for the civil aviation tection the shared responsibility Tirupati temple. It has a force of BSF sector where the Bureau of Civil of the Federal, state and local around one lakh personnel but Aviation and Security (BCAS) governments in active partner- needs at least 20,000 more per- draws up a list of safeguards for ship with the private sector which sonnel to protect vital areas and since it has been badly damaged has been pending, lost in red with fanfare in September last airlines and airports, there is no owns approximately 85 per cent vital points. Without creating a due to weather conditions and re- tape. The Border Security Force year to police the 320-km agency in the Government which separate agency, the Government peated submergence in water. which has 157 battalions to guard Karnataka coastline between performs security evaluation of can quite easily empower the CISF Long stretches of borders that the entire western and eastern Karwar, home for Asia’s biggest the nuclear energy plants, power to conduct detailed vulnerability India shares with Nepal (1,751 borders of over 7,000 km says it naval base Seabird that spreads projects, shopping malls, multi- THE MARINE POLICE, assessments of major private sec- km) and Myanmar (1,643 km) are is facing a manpower crunch and over close to 12,000 acres of land plexes, IT parks and five-star tor infrastructure projects and still open and vulnerable to infil- existing troops are under severe and geared to berth 50 naval hotels which are the new temples A CONCEPT ensure security is integrated into tration and gun-running. India strain. It urgently needs 69 more ships, and Mangalore. These of post-liberalisation India. It is ESTABLISHED AFTER projects from their inception. had planned to set up Integrated battalions or at least 69,000 more coastal stations were promised almost as though the Indian THE SERIAL BLASTS Wherever possible, technology, Check Posts (ICPs) with the two personnel to plug the gaps (each high speed boats and their aim economic miracle is one that IN MUMBAI IN 1993, like surveillance cameras, countries. This would have re- battalion has 1,000 troopers). Of was to check smuggling, drug miraculously ensures that its vul- IS YETTO TAKE OFF electronic perimeters and motion quired fencing of the borders, and these at least 26 more battalions peddling, and illegal entry of nerable economic infrastructure IN THE NINE detectors can be used to reduce keeping only the ICPs open for are urgently required. people through the sea, among is immune from any damage. the need for manpower-intensive trade and movement, but only af- Three Coastal Security Police others; the jurisdiction of CSPs was This ostrich-like attitude is only COASTAL STATES. security. These guidelines could ter a thorough customs and im- stations were inaugurated in up to 24 nautical miles on sea and compounded by the new spectre go a long way in preventing migration clearance. This, too, Mangalore, Malpe and Kumta 500 metres on land. One of the of economic warfare where ter- I future attacks.

44 45 8ISSUE THE AGENDA

he United Progressive terrorists and their sympathisers. The Government’s legal efforts, Alliance Government The proposed law for the first time collapsing into two briefly TOUGHENING dithered over strengthen- included “seizure of credit or debit discussed bills, cannot always ing the law dealing with cards” as evidence. The law has work as an effective detriment Tterrorists, but after the made it mandatory for everyone to towards further terror attacks and Mumbai attacks, it swiftly read- furnish information with regard to cannot react instantly to terror dressed some of the anomalies. terrorists or terrorist organisa- attacks. The legal plank should Parliament has passed the tions to the police. have necessary tools for the THE LAW National Investigation Agency Bill The Government has defined government to identify, incapaci- 2008 and amended the Unlawful the law in line with the United tate and even convict terrorists Activities (Prevention) Act (UAPA) Nations Resolution, making it more before they launch a strike. The with broad unanimity. The amend- up to date while the POTA had based Government should begin immedi- ments may get some breeze on the the definition on the 1973 report of ately to review legal and protocol back of law enforcement agencies the Law Commission. The law for regulations that limit the ability but the country still lack a the first time refers to radioactive, of the Multi-Agency Centre in the comprehensive legal framework nuclear or other substances, kid- Home Ministry to cooperate with to defend against, prevent and nappings and abductions by any other central, state and local law punish terrorism. Our laws are person to compel the government enforcement or intelligence organ- still, it seems, a step behind the to do or not to do something. In the isations and connect the intelli- terrorists’ parade. gence dots. Sharing of information The two acts have many with the Multi-Agency Centre common provisions with the re- should be made mandatory or the pealed Prevention of Terrorist THE LEGAL PLANK entire range of intelligence efforts Activities (POTA) Act but attempt to at various levels would turn into a bring in their ambit many new SHOULD HAVE worthless moving around of clauses that are current and, even, NECESSARYTOOLS bureaucratic boxes. Though the controversial. The new law ensures TO IDENTIFY, Government has issued an execu- that terror suspects can be detained INCAPACITATE AND tive order to streamline the efforts without charges for up to 180 days CONVICTTERRORISTS of intelligence agencies and the and police custody can stretch up to Multi-Agency Centre, the issue 30-day limit and puts in place a BEFORE THEY STRIKE. should be discussed further in carpet ban on bail for accused Parliament to clear apprehensions belonging to foreign countries. The I of the state governments and law will make anyone in India or weaved into a law to ensure it has abroad, directly or indirectly Rajiv Gandhi assassination case, enough weight. collecting funds for terrorism the Supreme Court held that it was The National Investigation punishable. Such a person will be difficult to establish that the assas- Agency (NIA), announced with punishable with a minimum sination had been carried out with much fanfare, needs to be imprisonment of five years and a a plan to “overawe the state” as strengthened to meet the new maximum of a life-term. stated under the Terrorists and challenges. Armed with powers AJMAL AMIR KASAB, According to the new law, any- Disruptive Activities Act (TADA). The only to investigate terror cases, the THE ONLYTERRORIST CAPTURED IN THE body organising or facilitating ter- new law revisits the issue by defin- fangless body is at risk of being MUMBAI ATTACKS ror camps and those who recruit ing terrorist act as attempt to reduced to a glorified police force,

AP PHOTO / MUMBAI MIRROR, SEBASTIAN D’SOUZA anybody for a terror act would “overawe by means of criminal not much different from a Special attract penal provisions leading to force or the show of criminal force Cell of the Delhi Police or an Anti- jail for minimum of five years. The or attempts to do so or causes Terror Squad of the Mumbai The legal framework of the country needs to be hardened Centre has also been empowered death of any public functionary or Police. The only advantage of in order to make the perpetrators of terror pay heavily to freeze, seize or attach proper- attempts to cause death of any having the NIA is that it takes away ties or economic resources held by public functionary.” from the states their discretion

46 47 THE AGENDA

AP POTAVS UAPA: THE UNRESOLVED DEBATE

ISSUE POTA* UAPA** Application Applicable to Indians and Applicable to Indians and non-citizens. non-citizens.

Definition of POTA made a major Widening the scope Terrorism Act change to the definition by further, the definition now substituting ‘with intent to includes offences ‘related overawe the government’ to radioactive or nuclear with the phrase ‘with substances’ and even intent to threaten the ‘attempts to overawe state unity, integrity, security or public functionaries’ or sovereignty of India.

Powers of Chargesheet needs to be Chargesheet needs to detention filed in 180 days. Hence be filed in 180 days but accused can be held court can limit detention without bail for that period. to 90 days.

Presumption Court to draw adverse More stringent as PARLIAMENT ATTACK ACCUSED AFZAL GURU inference if arms or the UAPA directs the court whether they want the central explosives recovered from to presume the accused Expert The call for an enhanced legal the accused or fingerprints guilty in these cases agency to investigate a particular Speak framework has resulted in of the accused found at the unless proved otherwise. case or not, like it is with the divergent views among the site of the incident. Central Bureau of Investigation legal experts (CBI). Ideally, the NIA should have Confession Confessions before a Confessions before a been armed with powers of both, K.T.S. TULSI T Confessions made before the police have police officer would be police officer would not be the CBI and the Intelligence Bureau to be admissible as evidence in court. admissible as evidence. admissible as evidence. (IB), something along the lines of Federal Bureau of Investigation T The need is for co-ordination among Special Courts Yes Ye s (FBI) in the US. different agencies for successful The FBI serves both as the investigation and prosecution. Admissible if authorised by Admissible without Senior Advocate Intercepts federal investigative agency and a joint secretary at written authorisation domestic intelligence agency. CHAKSHU RAI T The Government needs to provide request of SP rank officer Though the FBI’s mandate is much Parliament with the likely expenditure more than investigating just ter- required to implement the new laws. * Prevention Of Terrorist Activities Act ** Unlawful Activities (Prevention) Act ror-related cases, the NIA’s should T A standard provision of protecting officers be restricted to terrorism, leaving dents are away, and not requiring appointed, must closely coordinate cial transactions to cut off illegal acting in good faith and penalising those the rest to the CBI. Following 9/11, Legislative it to notify the residents for several with the Multi-Agency Centre and inflow of funds for terrorist activi- Researcher misuse law is missing. the USA Patriot Act had increased weeks afterwards. The NIA should other intelligence agencies. Merely ties, regulating banking channels, the powers assigned to the FBI, SHRIMOYEE have been given charge of investi- coming into the picture after the strengthened immigration checks T Confessional statements often become an especially in wiretapping and NANDINI GHOSH gating all terror-related activities terrorists have struck is not and also stringent measures to excuse to ignore the need for collecting other monitoring of Internet activity. In like funding, hawala transactions, enough. The NIA’s involvement check money laundering. evidence that will stand judicial scrutiny. fact, it even empowers the FBI in fake currency, drug trafficking must be ensured on a regular basis. The provisions have to be the so-called “sneak and peek’’ T When a confessional statement is retracted, and misuse of communication The anti-terror law should have backed by a comprehensive wit- provision, which allows the agency as it is in a high proportion of cases under equipment like the Internet provision for monitoring telep- ness protection programme to en- to search a house while the resi- Eminent Lawyer POTA, the entire police case falls apart. satellite phones. The NIA chief, once hones and emails, regulating finan- sure their safety and security. Along

48 49 THE AGENDA

both bouquets and brickbats from civil rights and legal CONFESSIONS made before a police officer,SP or TERROR LAWS: A COUNTRY COMPARISON activists. Unlike in POTA, above,should be admissible as evidence in court with confessions before a adequate safeguards and oversight committee. ISSUE GERMANY FRANCE UK US INDIA police officer would not Action be admissible as evid- NO presidential pardon for those awarded death Period of Anyone Can be held Suspect can Any US citizen Accused can Plan penalty in terror cases. detention arrested must for four days, be held for 28 should be be held for ence and the UAPA is be brought only after judi- days without charged 180 days more stringent than the GOVERNMENT should ensure that while before a judge cial consent charge. Aban- within seven without filing POTA in at least one respect. implementing anti-terror laws,the principles of federal within 24 on day two. doned plans days of chargesheet. While POTA required the courts hours, and a The detainee to extend into detention. But court to take certain evidence as “adverse polity are not infringed upon. judge can can contact 42 days after Others can be can limit extend it to lawyer only House of detained in- detention to inference” against the accused with THE NIA should have been armed with powers of both the 48 hours. after 72 hours. Lords vote. definitely. 90 days. possession of arms, UAPA directs the CBI and the IB,something along the lines of the FBI in the US. court to presume the accused guilty Special No special Section of trial Elaborate Normal Special in these cases unless proved ANTI-TERROR law should have provisions for monitoring Courts courts for court speci- special federal courts for otherwise. Also, POTA provided for telephones and e-mails,regulating financial transactions to terror cases. alises in ter- courts courts hear speedy trial review committees to assess each rorism. A local with closed cases related as per cut off illegal inflow of funds for terrorist activities. prosecutor de- hearing and to terrorism. amended case; this safeguard against misuse PROVISIONS have to be backed by a comprehensive cides whether specialised UAPA. is not in the new UAPA. the crime is judges. The Government’s claims that witness protection programme to ensure safety and related to at no point it will impinge the civil security of the witnesses. terrorism. liberties of the citizens ring a hollow sound, most say. Amnesty Law of Fighting France has Even encryp- Enhance penal- Enhanced Special International slammed India’s new move in the right direction. the trial. Whereas in the US, any Terrorism is not provisions to tion regulation ties for engag- penalties Conviction anti-terror legislation to beef up Opponents of this move argue that confessions made in violation of Provisions a single piece of convict violations can ing in terrorist for funding, legislation, but its citizens attract life activities, supporting police powers and has appealed to while the Government is using procedure and made under duress title given to an even for “in- imprisonment. funding and and engaging President Pratibha Patil not to Kasab’s telephone intercepts and are not admissible. omnibus pack- direct associ- membership of in terrorist approve the legislation, which his confessions as evidence to The danger associated with age of amended ation” under terrorist activities. would double the number of days implicate Pakistan in Mumbai allowing concessions to the police statutes. terror law. organisations. police can detain terror suspects terror attacks, his confessions are is that it incentivises their before filing charges, from 90 days not valid in Indian courts. Section complacency and bad investiga- Don't relieve pros- Confessions Confessions Evidence, in- Confessions in Confession to 180, as well as boost their 26 of Indian Evidence Act and 162 tion. The confessional statement ecutor from bu- in police cus- to police are cluding confes- police custody in Custody powers to conduct searches. of Criminal Procedures Code state often becomes the piece de as Evidence rden of proof when tody not admissible as sions, against are not admis- trying case with admissible long as they are procedure is sible in the “While we utterly condemn the that confessions in police custody resistance of the police case, and valid confessions. as evidence. not coerced. inadmissible. Indian court. attacks and recognise that the are inadmissible as evidence. works as an excuse to ignore the Indian authorities have a right and need for collecting other evidence duty to take effective measures to he flaws within the Indian that will stand judicial scrutiny. with the new legislation, the NIA the best in the world. Incidentally, even the CPI(M)-run ensure the security of the popul- police system allow torture to This calls for a need for extensive has to effect a complete overhaul However, the national mood Government in Kerala joined Modi ation, security concerns should Thappen routinely and it often reform of the police forces which of the country’s criminal justice that existed while Parliament in attacking the Centre. never be used to jeopardise casts a doubt on confessions, even rely on scientific investigation and system. Scenes of terror attacks legislated the new terror law The legislations, as a rule, have people’s human rights,” said voluntary ones. In the United evidence collection methods have to be sealed, and seizures and withered away when various to prove its worth in practice. Madhu Malhotra, Asia Pacific Kingdom, where confessions to instead of coerced confessional arrests video-recorded. There BJP-run states came out against NIA While implementing our policies Program deputy director at the police are admissible, provides statements which can be retracted should be mobile forensic units saying that it was against the and formulating plans to fight Amnesty International. they are not coerced or induced, in the court of law. If we make which should rush to the spot with principles of a federal state. Gujarat terrorism we should achieve both Though the Government’s the question of admissibility is steady progress in police reforms, the first dispatch of the police. Chief Minister Narendra Modi said the coveted goals, liberty and decision to make confessions made decided in a separate ‘mini trial’ we can effortlessly incorporate They should be a part of the NIA, that the setting up of the NIA was security, to an appreciable degree. to police officials as admissible has within trial. Only confessions provisions allowing confessions which should also have a forensic “an attempt at sidetracking” the There are at least two differences come under stiff resistance from that fall under elaborate judicial made in custody as evidence under lab, equipped with the latest and states in the fight against terror. in the amended UAPA, which brings the BJP, rights activists say this is a principles are admissible in an oversight mechanism.

50 51 9ISSUE THE AGENDA

AP PHOTO CLOSING THE Terror Tap

Clamping down on the flow of money that nourishes the monster and keeping a close watch on explosive substances is now an imperative

ne of the key targets of in small amounts, and thus slowly terrorism, India has no to build up resources instead of procedures in place yet to sending a huge amount of money check the flow of terror in one transaction. 0funds into the country or In addition, the traditional to regulate the movement and sale methods of financing terror also of explosive substances. The continue to flourish. These include amended Unlawful Activities smuggling, fake currency, drug Prevention Act (UAPA) has provided rackets and gunrunning. There for freezing the accounts of are intelligence reports about suspected terrorists and seizing terrorists investing in the stock ex- their properties. It continues to be change and real estate as well. silent on preventing these funds Unfortunately, India has failed to from making their way into the crack down on any of these. In fact, country in the first place. there is no estimate of the extent of It is not a secret anymore that terror funds which are finding the inflow of funds for terrorist their way into the country. outfits and their operatives no The Home Ministry only tracks longer comes solely through the the funding coming through legal conventional hawala routes man- channels, which poses as aid being aged by the underworld. Regular provided to non-governmental banking channels and wire trans- organisations (NGOs). fers are increasingly being used for Monitoring the foreign funding terror financing, according to the received by NGOs, they keep black- security and intelligence agencies. listing organisations which fail to Credit and debit card transac- submit their accounts or indulge in tions below the “threshold requir- some suspicious activity. The min- ing proof of identity” are being istry cannot do much else but ban used to bring in or access funds the organisation from accepting without attracting attention. The any funding. modus operandi is to send money Other than this, there is no system in place to check the inflow ARMYMEN WITH RDXAFTER KILLING THREE MILITANTS AND RECOVERING of funds. That is one of the main 345 KG OF EXPLOSIVES IN SRINAGAR reasons why India has been denied

52 53 THE AGENDA

AP PHOTO Expert FERTILISER Speak A lowdown on the options to curb OF DEATH the availability and movement of RDX and ammonium nitrate A hawk eye needs to be kept on easily available ammonium nitrate T Dog squads should be used to detect RDX, even at immigration. The Explosive Substances Act RAJA MENON must be amended to include We don’t have a sufficient number ammonium nitrate, a com- of sniffer dogs for this purpose. monly used fertiliser with ex- Retired T The sale and movement of plosive properties. After the Rear ammonium nitrate is impossible fertiliser was used in the Delhi Admiral to regulate. Most retailers can’t blasts last year, the Govern- even read or write. ment announced the constitu- tion of a committee under the JOGINDER SINGH T An organised mechanism is home secretary. Since then, lit- needed to check printing and tle information has flowed out smuggling of fake currency of the ministry. India should emulate the US T Securing the borders will help which is still regulating its sale Former curb smuggling of explosives like after 9/11 CBI chief RDX into the country Ammonium nitrate is T Old acts like the Indian Explosives produced in large quantities VIJAY SHANKAR by state-managed public sec- Act (1884) need to be amended and tor units such as IFFCO. These replaced by efficient regulations organisations have large rural networks. Even though they T There is an urgent need to revisit handle large quantities, regu- laws regulating monetary transac- lating its movement is possible. Former tions. Money laundering bill needs CBI chief India is a leader in agricul- to be amended. tural technology. The Govern- ment needs to promote research urgently to find ator’ that will come within the are questionable transactions. safer fertilisers. A CHEMICAL FERTILISER FACTORY making it more effective in curbing finance minister. ambit of ‘financial institutions’ and Though the banks report cash (LEFT); SEIZED AMMONIUM NITRATE BEING DESTROYED the financing of terrorist activities. With some of the key amend- obliged to share any transaction transactions of Rs 10 lakh and The Government has been sitting ments to the PMLA, not only will in- over Rs 10 lakh with India through above to the FIU, they do not neces- membership of the Paris-based on the recommendations for the ternational credit card trans- the Financial Investigative Unit sarily report all suspicious trans- Financial Action Task Force past two years, though Home actions and money transfers come (FIU). Some of the other key amend- actions and unexplained activity in (FATF)—the inter-governmental Minister P. Chidambaram prom- under the scanner but also a new ments also make it mandatory for an account. body mandated to devise and pro- ised after the 26/11 Mumbai terror category of offences with “cross- lawyers, accountants, foreign Indian efforts at combating ter- mote measures aimed at combat- attacks that he would bring it to the border implications”. This includes exchange dealers, real estate ror financing have been found in- ing money laundering and Parliament soon. He should have offences which occur in another agents, jewellers and gem dealers adequate by international stan- terrorist financing. India has to shown the same urgency in getting country, which may or may not con- to report such transactions. dards. That is one reason why fulfil certain criteria to make it this Bill cleared as he did in the stitute an offence in that country However, the PMLA amend- Indian banks like ICICI are finding eligible to join the exclusive 34- case of UAPA and when setting up but is an offence in India. ments have failed to define suspi- it difficult to open branches in country organisation. The main the National Investigative Agency. Even International Payment cious transactions compre- other countries. They are always one is strengthening the provisions Ironically, the new set of amend- Gateways—Visa, Master Card and hensively and left it to the discre- refused permission on the ground of Prevention of Money ments were finalised by Western Union—would be regu- tion of banks and financial institu- that the anti-money-laundering Laundering Act (PMLA), 2002, Chidamabaram when he was the lated via a ‘payment system oper- tions to report to FIU what they feel laws in India are not good enough, AP PHOTO/RAJESH NIRGUDE

54 55 THE AGENDA

and that they cannot take chances. HEED the advice of the intelligence agencies Another is the which favour posting of revenue intelligence absence of foolproof know-your-customer Action officials to embassies and high commissions of sensitive countries like Pakistan,UAE,US,UK, (KYC) norms, not Plan adhered to most banks Nepal and Afghanistan.The purpose is to monitor by India. Half the battle financial transactions of terror outfits and ISI will be won if these norms agents based in these countries. are adhered to. Most countries have become ENSURE amendments to Prevention of Money Laundering very stringent post-9/11. In the US, Act (PMLA) are passed soon,even if as an ordinance,to cut for example, bank accounts and off illegal transfer of funds for terrorist activities. financial transactions are closely monitored by the authorities. THE FINANCIAL Investigative Unit should be brought It has become a norm to use credit under the umbrella of the Multi Agency Centre for better cards routinely since payments coordination with other intelligence agencies. made using them can be traced. WITH INTELLIGENCE inputs about terror outfits If an individual uses cash for two or three consecutive payments or on a investing in the stock exchange and real estate,their regular basis, he comes under a linkage with various building and construction companies cloud and is questioned. Credit needs to be probed. cards, issued in the US, cannot be PLUG the routes commonly used to smuggle RDXinto used in any other country without permission from the issuer. India,which include Bangladesh,Nepal and Myanmar The Government must act borders.Poor policing and corrupt border guards help in quickly so as to meet FATF norms. smuggling at the Bangladesh border,and open borders aid it in Nepal and Myanmar. POLICEMEN COUNT FAKE CURRENCY NOTES RECOVERED FROM TERRORISTS NEAR THE NEPAL BORDER

AFP PHOTO Setting up of the FIU—with the mandate to receive, process, analyse and disseminate informa- tion relating to suspect financial transactions—in 2005 was in conformity with the FATF guidelines. FIU, however, has so far failed in its mandate in absence of PMLA amendments and also since it lacks a regular coordination with other intelli- gence agencies like the Intelligence Bureau and the Research and Analysis Wing. FIU too needs to be brought under the Multi Agency Centre for better coordination and action to cut off easily available funds.

56 10ISSUE THE AGENDA

BE FASTAND Precise

AN INDIAN AIR FORCE SU-30MKI ON A JOINT EXERCISE

India’s armed forces must modernise and move to hi-tech precision strikes to take on non-state adversaries as well as traditional rivals

57 THE AGENDA ARMY INDIA PAKISTAN n December 2001, in the wake highly mobile force. The Chinese THE TROOPS 11 LAKH 5.5 LAKH of the terrorist attack on are creating a world class army TANKS 3,500 2,300 Parliament, the Government or- that can take on any counterpart, MILITARY dered the armed forces to mo- including the United States. It has Ibilise for attack. But the process fielded new long-range missiles was so slow, that by the time the and acquired advanced weapons BALANCE forces were ready the next month, and continued to invest a signifi- not only was the Pakistan Army mo- cant proportion of its resources in India maintains AIR FORCE INDIA PAKISTAN bilised, but Islamabad was ready to domestic industry and science its traditional give guarantees that it would end and technology. numerical FIGHTER 600 353 all terrorist activity emanating from The Chinese did have a major superiority but AIRCRAFT Pakistani soil. The moment passed. logistical problem in Tibet till re- nuclearisation of TRANSPORT 150 20 The November 26 attack has cently. But now their road and rail the subcontinent AIRCRAFT brought on a sense of déjà vu. De- network, built with great ingenu- spite claims that the army had, ity and at great cost has trans- has nullified HELICOPTERS 300 300 since 2002, adopted a new “cold formed the situation. According to that advantage start” doctrine, there are no signs the 2008 version of the US report, of any movement by the army Military Power of the People’s other than the routine training Republic of China, “The PLA is pur- NAVY INDIA PAKISTAN movements that take place at this suing comprehensive transfor- AIRCRAFT 1 - time of the year. mation from a mass army CARRIERS India enjoys a qualitative and designed for protracted wars of INDIA PAKISTAN quantitative edge over Pakistan attrition on its territory to one ca- MILITARY SUBMARINES 16 5 in its air and naval assets, but the pable of fighting and winning BUDGET $ 26 BN $ 4.4 BN DESTROYERS 8- armies of the two countries are short-duration, high intensity evenly matched. On paper, India’s conflicts along its periphery FRIGATES 13 6 NUCLEAR* 1.1 million-man army with more against high-tech adversaries— 100 50 3 1 than 3,500 tanks, artillery guns, an approach that China refers to FLEETTANKERS MISSILES by Sandeep Unnithan rocket launchers and infantry as preparing for ‘local wars under *Approximately Graphic by MADHUMANGAL SINGH combat vehicles, is almost twice conditions of informatisation.’” the size of Pakistan’s 5,50,000- This “informatisation” could re- “volunteers.” India clearly falls with regard to China the policy formed reasonably well. When- ing by the civilian bureaucracy. force with some 2,300 tanks and fer to what we call network cen- among the countries that will be was to have the kind of defensive ever it has been confused or ab- Since the primary function of artillery guns. But one-quarter of tric warfare, or it could be what affected, that, too, in the short, strength on this side of the India- sent, there is frustration and the Indian armed forces is to fight the Indian army is involved in some western analysts say is “un- rather than the long term. Tibet border that would dissuade disaster—1965 and 1962. No one external enemies, its planning counter-insurgency operations, restricted” warfare, involving cy- The problem with Indian Beijing from a military strike. is sure under what political direc- must be based on potential ad- and a significant number are ber attacks by an army of civilian armed forces lies in all three ar- Factor nuclear capability into the tive the forces operate today. But versaries who could be super- committed to defence on the Sino- eas—organisation, equipment equation and the doctrine itself one thing is certain, just as in the power like China, or a Indian border. The Kargil review and doctrine, and, this is the joker changes as was clear in the Kargil past, they are not treated as part nuclear-armed Pakistan to enti- committee report had noted that in the pack—higher political di- war when India insisted in limit- of the Government of India, but an ties like the LTTE or the Lashkar- e- “the heavy involvement of the INDIA ENJOYS AN rection. To begin with, the doc- ing it to the area of the incursion. ancillary department. Which Toiba—in other words, ranging army in counter-insurgency op- EDGE OVER trine: in the early 1980s, the There have been several efforts to means that they may be consulted, from strong state to transnational erations cannot but affect its pre- PAKISTAN IN ITS AIR political directive to the three amend it—the “limited war” idea but do not form part of decision- non-state actors. What we are paredness for its primary role, AND NAVALASSETS, services was that they were to during General V.P. Malik’s time making. Efforts to remedy this by witnessing, at least in so far as which is to defend the country maintain “dissuasive deterrence” and the “Cold Start” doctrine overhauling the defence manage- China is concerned, is the emer- against external aggression.” BUTTHE ARMIES OF vis-à-vis Pakistan and “defensive raised during General S. Pad- ment of the country have failed. gence of a very modern and high- This does not even begin to THE TWO COUNTRIES deterrence” in relation to China. manabhan’s tenure. Key recommendations of the tech force. The Indian armed factor the emergence of the new ARE EVENLYMATCHED. This meant that they had to have Whenever political direction Group of Ministers report on de- forces, too, must follow the model People’s Liberation Army the capability of undertaking a has been clear—1947, 1971, fence management have not been imperatives of what is called (PLA) of China as a high-tech, I deep offensive into Pakistan, but 1999—the armed forces have per- implemented because of barrack- the Revolution in Military Affairs

58 59 THE AGENDA

strike demand the control of the The doctrinal consequences of forces. Conventional massed efforts, we have not been able to n The armed forces should air and space. In the Iraq war, the such developments are primarily tanks, artillery and stationary meet our goals. As India’s eco- become part of the national secu- US forces used some 50 satellites on organisation, war-fighting and forces will be sitting ducks. The nomic and cultural footprint in- rity decision making process and for a variety of tasks ranging from manpower training. RMA technolo- high-tech component means creases, India confronts newer should be given clear politico- surveillance, GPS for precise navi- gies are expensive and the best, that the qualifications of the sol- threats and has to examine radi- military directives. Politics and gation and for guiding munitions indeed, the only way to use them diers and officers have to be up- cally different strategies to meet diplomacy are key elements of like the joint direct attack muni- is to integrate the functioning of graded sharply. The whole them. Needless to say many of war-fighting and it is vital that all tion (JDAM), communications, the three services. However, serv- intellectual culture of the armed these challenges, such as terror- the three—politicians, bureau- early warning of ballistic missile ices everywhere resist this and the forces needs to change to reflect ism, are not just to India but to the crats and soldiers learn to respect launches, and so on. key impetus usually comes from the need for integration as well civilised world at large, but, if each other and work together. A newspaper report of 2002 the political leadership which as what are called 4th and 5th India seeks a certain standing in n The three services—the army, brought out what is the current knows that it cannot meet the de- generation warfare. the comity of nations, it must pull navy and air force—must be to- paradigm in military thinking. It mands of military services for For the past 50 years or so, In- its own weight. The first lesson in tally integrated. A chief of de- was a report on a briefing of the modern equipment given the ex- dia has been content to build up international politics is that there fence staff, who will be first Parliament’s Consultative Com- isting budget constraints. “short-legged” capability that are no permanent friends or ene- among equals in the three serv- mittee attached to the Defence Since Indian forces can be would provide offensive deterrent mies, only permanent interests. In ices, should be in-charge of all Ministry in 2002, which noted targets of such capabilities, our capability vis-à-vis Pakistan and other words, you have to pull your planning, provisioning and ac- that the three services, “in sepa- forces must be reorganised into defensive one with regard to own chestnuts out of the fire. And quisitions. He should also head rate presentations in April 2002”, smaller, more mobile China. However, despite our best this is how we can do it: training institutions and the had pointed out that India’s su-

ON GUARD IN SRINAGAR periority over Pakistan was barely 1: 1.2, down from 1: (RMA). Reduced to simple terms, 1.7 obtained at the time of Expert BRIG. GURMEET KANWAL AIR MARSHAL P. S. AHLUWALIA GENERAL V.P. MALIK COMMODORE UDAY BHASKAR AIR VICE-MARSHAL KAPIL KAK such warfare today is called pre- the Bangladesh war. An- Speak Director, Additional cision, long-range warfare. In the other report of the same Centre for Director, past, wars were won by manoeu- briefing noted that the ratio Land Former Former Former Centre for vre, while today, with high-tech that stood at 1: 1.56 in 1990 Warfare Western Air Army Head, Air Power Studies Commander Chief IDSA Studies surveillance and communications and had come down to 1: 1.22. equipment, you can locate the en- But this was only the man- On how T Sensitise the political T Enhance military pre- T What we need is equip- T Our armed forces are T Dynamic environmental emy forces before they come to power ratio. It did not reflect India can leadership to the nuances paredness for instant ping the forces with mod- primarily trained for pro- transparency to build up the battlefield. You can thereafter what really matters in modern build a of national security execution of military ern day gadgets and tecting territory and not the highest levels of destroy them by pinpoint attacks war—combat power that can be stronger decision making; institu- operations with specified weapons to fight modern fighting insurgency. We capabilities, especially using precision-guided muni- brought in the old-fashioned way military tionalise the defence objectives to respond day terror.What we also need to hone the focused on challenges; tions. RMA requirement for situa- through manoeuvre and decep- planning process; formu- more quickly to mass need is streamlining of domain expertise of the a concentrated, organic tional awareness and precision tion, and in the modern way by late a comprehensive na- casualty terror attacks; procedures between NSG armed forces. We need to and faster integrated modern technology. Unfortu- tional security strategy; acquire more Aerostat and army and police and create the software (read decision cycle for crisis nately for the Indian armed ensure better civil-military radars, Unmanned Aerial civil forces. Streamlining strategy) and then apply it situations like terrorist forces, they sometimes lack even integration in the execu- Vehicles,AWACS and spy of procedures will add through human resource. strikes; a national middle-level technology such as tion of national security satellites to increase more teeth to the forces Appropriate Technology operations room with a THE INTELLECTUAL surveillance capability; self-propelled artillery without strategy at both the and contribute to their ca- needs to be introduced for crisis centre for every CULTURE OF THE centre and state levels deploy special forces for pabilities to fight the mod- the air force to augment state government; which an armoured corps lacks to enable a speedier anti-terrorist operations; ern day enemy. their surveillance capabili- creating synergies with ARMED FORCES vital fire-power. In 1999, during NEEDS TO CHANGE TO response to Mumbai-like reorient armed forces to State-actors in Pakistan ties.This is also true for the media for greater the Kargil War, the Indian Navy attacks; enhance the fighting terrorism, train have created various the Indian Navy, which national effect during EMBRACE 4TH AND had to keep some powerful new acquisition, dissemination for counter-insurgency forces over a period of must be added with more crisis situations; engage- 5TH GENERATION frigates in safe harbour because of intelligence especially operations; hire more time and these are getting teeth against the back- ment—don’t say no to WARFARE. the DRDO had not been able to human intelligence for human intelligence out of control, which pose drop of Pak-based terror- cooperative security by provide the surface-to-air mis- counter-insurgency and assets for cross-border a graver security risk for ists using sea route for the letting the peace process I siles they had promised that they counter-terrorism intelligence the region. Mumbai strikes. with Pakistan suffer would make.

60 THE AGENDA

strategic command in-charge of nuclear assets and over- INTEGRATE armed forces with the Union see the process of inte- grating the forces. Ministry of Defence n RMA technologies Action APPOINT a chief of defence staff, such as satellites, UAVs a single point military adviser to the Government and other sensors are Plan expensive and they FASTTRACK pending military purchases.Lay down must be shared by the time-bound programme for acquisitions and cut it three services. This force down from the present six- to eight-year timeframe. should be networked in a manner that a soldier on a battlefield SET UP separate Ministry for Defence Procurement should be able to bring on support staffed by permanent specialists to smoothen the fire from either of the three serv- acquisition process ices—an air force bomb strike, a CREATE Raksha Udyog Ratnas from the private sector cruise missile launched from the sea, or an army artillery or ballis- giving them the status of defence PSUs to boost tic missile strike. indigenous defence enterprise n The existing command and BUILD more greenfield shipyards within the country to control system with the western, encourage local shipbuilding and help the coast guard and eastern, southern and northern commands of various services, marine police meet force levels needs to give way to the concept INDUCT satellites,UAVs and long-range spy planes to of theatre commands with a improve surveillance over land and sea single commander in-charge of all the forces there. As a first step, the PLUG gaps in defence air space by inducting radars Government needs to identify, say, ACQUIRE capabilities like precision strikes and night fight- the southern command, and lay ing than merely inducting platforms down a schedule for integrating its command and control struc- ture totally under, say, the navy. n Reduce the flag service to seven years for jawans. They should equipment that goes into it. base, yet we are not too far down be 10+2 pass and thereafter be n The forces must encourage a the road. There have been four trained in the service. The army culture of intellectual enquiry major requipment cycles 1950s, will be able to reduce its salary and academics in its higher com- 1965-75, 1985-1995 and 2000. In and pension bill and get younger. mand officers. Qualifications like none of these have indigenously After this service, the jawans can a Ph.D. should be included in the designed weapon systems played opt to remain as non-commis- criteria for higher command, a major role. sioned officers or move to the rather than be a hindrance. n India must establish a military paramilitary services, other gov- n The armed forces must be wing of its capable space ernment services or reserves. taken out of all police functions programme. The Indian Space n Like the navy, the other serv- which ought to be handled exclu- Research Organisation has been ices should, too, consider training sively by the CRPF, BSF, ITBP, CISF, an insistently civilian outfit that their officers to higher level, with Rashtriya Rifles etc. shies away from participating in most getting engineering or man- n A vibrant defence R&D base and any military activity. Any RMA-ori- agement degrees at the outset to industry must be created. For the ented force will require support be able to manage the modern past 50 years, India has been try- from Indian made and operated battlefield environment and the ing to set up a defence industrial satellite systems.

62 11ISSUE THE AGENDA

WINNING Kashmir

POLICE PERSONNELSONNEL ON SRINAGARGAR STREETSTREET

AP PHOTO/DAR YASIN

India needs to tackle the Valley’s discontent by deciding how much autonomy Kashmir requires and working out a way to negotiate with Pakistan

63 THE AGENDA

he turnout and verdict in state’s special powers. The Pakistan do not follow the same Jammu and Kashmir’s problem has been exacerbated by national ethos. India is a secular Expert What needs to be done to win Kashmir and win over Kashmiris 2008 Assembly election Pakistani covert intervention country. Things are, to put it Speak indicates that the political which in the last two decades has mildly, not quite the same in T culture of the state involved sending in thousands of Pakistan. Discrimination against remains vibrant. This time a trained militants into the state. Ahmadiyas and non-Muslims are healthy 62 per cent of the voters The campaign has involved acts of written into Pakistani laws, as participated in the elections as terrorism in other parts of India, are those against women. The LT GEN V.G. T Newly elected T Dispel the T Show self- T Formulate a strong T Partially PATANKAR (RETD) compared to just 44 in 2002. It is including bomb blasts, taking of status of the Shia community, government notion that the confidence in deliverable develop- withdraw security significant that centrist and hostages and an aircraft hijack. constituting some 20 per cent of must give Valley gets a dealing with the ment for schemes forces from areas secular forces like the National The Jammu and Kashmir the country’s population is not proportionate disproportionate Hurriyat. which are not en- where the situa- Conference and the Congress dispute is today seen as an identity particularly good. representation share of Encourage them tirely dependent on tion has party have formed a government issue. Pakistan, though an entirely The Muslim community in Former Army to all regions. resources. to join dialogue. central assistance. improved. under staunchly pro-India Omar false reasoning, has declared India has steadfastly opposed the Commander Abdullah, the son of the former Jammu and Kashmir to be the Kashmiri separatist movement, SATISH KUMAR T Attempts to T Reports prepared T The 5th Working T Dialogue with T The role of chief minister Farooq Abdullah “unfinished agenda of partition.” notwithstanding its own grouses involve the by the NC govern- Group set up on Pakistan should United States and the grandson of Sheikh In recent years, the Pakistanis against the system. This is because so-called ment on Kashmir’s relationship with also take into con- should be limited Abdullah. Omar’s sober and hard- have conveniently declared that they insistently see their future in separatists in the autonomy in the Centre should sideration views to pressuring dialogue should 1999 should be be asked to expe- of the new civilian Pakistan to stop headed leadership can play a they are for “self-determination” the secular Indian Union which for be continued. re-considered. dite its report. Government. terrorism. major role in resolving the tangled in the state. General Pervez all its faults has the self-correction Editor, INDIA’S NATIONAL SECURITY Kashmir question. Musharraf came up with his four- mechanism of a democracy. Every Jammu and Kashmir has been stage plan involving identifying one knows that Jammu and AMITABH MATTOO T Institute a T Revamp the T Give the Jammu T Invest in skill T Generate a major national headache, from sub-regions that needed resolu- Kashmir is a tough problem to Reconcilliation PM’s Working and Kashmir development, a Vision—2015 the tribal invasion of 1948 to the tion, demilitarisation, self-rule in resolve. Not only is its status and Rehabilitation Group and appoint police primary vocational for the state state’s legal accession to the Indian identified regions and joint disputed between India and Commission to en- an expert group on responsibility education and re- in consultation Union and the global power management mechanisms to Pakistan, but a large number of sure the return of autonomy and for combating training of the with stake- politics that turned it into disputed oversee the process. This sounds Kashmiris have taken up guns to Former V-C, Kashmiri Pandits. regional balance. militancy. unemployed youth. holders. territory, to the undermining of the reasonable in theory, but would be fight for what they call “aazadi.” Jammu University complicated in practice. The one A negotiated settlement of the JAMMU AND KASHMIR’S NEW CHIEF WAJAHAT T Trust must be T Introspection T 'Separatism' is T Increased trade T Military MINISTER OMAR ABDULLAH reason for this is that India and problem of Jammu and Kashmir is HABIBULLAH built between the followed by increasingly an relations between presence in civil- in keeping with India’s interna- people of each dialogue between anachronism as a the Indian and ian areas must tional and bilateral commitments. region of the all segments of consensus is devel- Pakistani-admin- correspondingly It represents India’s position of state with the political oping that seces- istered parts be reduced on strength and the inability of each other. leadership. sion is no option. of J&K. both sides of LoC. Central Informa- Pakistan to alter the situation by tion Commissioner force. It is also a move towards a humanitarian solution of the VARUN SAHNI problem. As for Pakistan, its T Dealing with Pakistan is a complicated balance T We must get several balances right simultane- position is not clear. At one time it which requires putting pressure on it in a ously—between Srinagar and Delhi, the one demanded that the state be part of manner that doesn’t cause escalation. between the sub regions of Jammu and Kashmir. Pakistan because of the religious Vice-Chancellor, affiliation of the majority of the Jammu University Kashmiris, later it began to back a plebiscite in the state. More recently, it claims that it is for huge amount of money and effort not permit its territory, or territory of the issue through direct talks. “aazadi” and is merely providing to back the anti-Indian armed under its control, to be used for Besides the official talks, New Delhi diplomatic and political support to insurgency in the Valley. acts of terrorism against India. In and Islamabad have undertaken a the separatists. Yet the facts are According to the January 6, turn New Delhi has agreed to number of back-door negotiations that Islamabad has poured in a 2004 agreement, Islamabad will undertake a diplomatic resolution through special representatives AP

64 65 THE AGENDA

AP like Satinder Lambah and Tariq border in Kashmir, and some Aziz. Some proposals have TAKE significant opening up of blocked transport been discussed through steps towards corridors in Punjab and Rajasthan, the device of non-pa- Kashmiri there has been little movement pers. Others have been Action towards SAFTA. autonomy. put in the public do- Plan When Jammu and Kashmir main through the INVOLVE civil acceded to the Indian Union, it media. Former Pakistan society,especially offered to put defence, foreign President Pervez women,in economic affairs and communications into Musharraf was quite adept at the hands of the central govern- this and sought to stretch the initiatives. ment. Subsequently these issues political envelope, but for his part CONVINCE the world that were spelt out in Article 370 of Prime Minister Manmohan Singh a non-communal and non- the Indian Constitution. In 1952, has laid out the Indian bottomline sectarian solution is in a Delhi Agreement signed between which is that no formal change of the government of India and existing borders would be the best interests of that of Jammu & Kashmir spelt acceptable to India. Both India and Jammu and Kashmir. these out in some detail. Since Pakistan have agreed that the KEEP up dialogue with then, however, the state’s special borders between the two Kashmirs Pakistan with a view to status and autonomy were under- must be softened to, as Manmohan mined systematically by the Singh once said, “the point eliminate the infrast- Union government. In 1994, the of irrelevance.” ructure of cross-border then Prime Minister P.V. The emergence of a new terrorism and to appear Narasimha Rao had declared that civilian government in Pakistan as a reasonable actor in the “sky is the limit” as to the has brought a hiatus of sorts. The amount of autonomy India could JAWAHARLAL NEHRU (RIGHT) WITH SHEIKH ABDULLAH the international stage. Mumbai massacre has created its give to the people of Jammu and own problems. The original CONTAIN and defeat the Kashmir. But when in July 2000 Kashmir: Abrief history intention was to situate the terrorist threat with the elected government of Jammu Kashmir border formula within a and Kashmir sent the report of the History can be interpreted in several ways. So, is the case insisted in the UN that the Kashmir grab was not the issue maintenance of adequate larger opening up of the India- state autonomy commission rec- with Jammu and Kashmir. Contrary to popular view, India but New Delhi’s decision to defend the territory that had security. did not actively seek the accession of the state to the new legally, as per the rules the British themselves had made, Pakistan border as a consequence ommending full autonomy to the Indian Union in August 1947.But an inadvertent acceded to India.The result is that almost the entire world of the acceptance of a South Asian OFFER an amnesty to state except in the areas of finance, consequence of the partition massacres was that the community continues to see Jammu & Kashmir as a Free Trade Area. But while there Kashmiri-origin militants. defence and foreign affairs, the Maharaja of Kashmir, the only man who could, under the disputed territory. Initially, the world community sought a has been significant growth of Union government shot it down. British rules, decide the accession of the state, felt that plebiscite, but when this proved unviable, they sought to CREATE a truth commis- trade, progress in softening the India needs to tackle the his multi-ethnic, multi-religious state, albeit with an mediate through the UN. However this, too, did not work sion for missing persons. overwhelming Muslim majority, would be better off and then, in the wake of the Sino-Indian War of 1962, India Kashmir problem on two fronts: with secular India. and Pakistan had direct discussions on the issue and even SOFTEN the border; first, to deal with Pakistan on the However, the choice was not his. It was forced on him discussed partition proposals. However, despite strong actively engage people issue, and second, to resolve the by a tribal invasion organised by the new government of US-UK backing, this process collapsed at the end of 1963. state’s autonomy problems. India Pakistan.At that time, Pakistan claimed that it had no Under the accession rules,J&K transferred INDIA SHOULD NOT of PoK and the should not fear to offer Kashmir a control over what happened. But subsequent history has defence, foreign affairs and communications to India. NEGOTIATE OUT OF northern areas. shown that Pakistani leaders, going all the way up to Prime Subsequently, through an Article 370, it associated itself FEAR, BUT IT SHOULD degree of autonomy that would Minister Liaquat Ali Khan, were involved in the planning, with the Union of India in a special category. Some of NOT FEAR TO NEGOTI- RECOGNISE Pakistan’s evolve the Valley to maintain its organisation and execution of the invasion plan.As Indians the special rights of the Kashmiris were spelt out in the control of ‘Azad’ ‘Kashmiriyat’. With Pakistan, while are now discovering, Pakistan was able to transform this Delhi Agreement of 1952. But the falling out between ATE ON KASHMIR it should not negotiate out of fear, it blatant act into one of victimhood. Kashmir was meant to Sheikh Abdullah and Prime Minister Jawaharlal Nehru Kashmir in return for it WHILE PROTECTING ITS should not fear to negotiate a way be a part of Pakistan, they argued, and notwithstanding led to a systematic undermining of all the special accepting LoC as the the causal somersault, insisted that India had seized it. powers that the state had retained.The centralisation NATIONALINTERESTS. out of the Kashmir impasse without Then, as now, global power politics came to Pakistan’s process inaugurated by successive governments in permanent border. compromising on India’s sover- rescue.The British, leading the Americans by the nose, New Delhi further exacerbated this. I eignty and territorial integrity.

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THE AGENDA 12

he citizens’ movement in involved citizen. You can make the wake of the Mumbai the difference by insisting that attacks has been unprece- your residents welfare associa- dented in scale and in- tion beef up security in the im- T volvement. The public hit mediate neighbourhood and the streets, and not just in Mumbai work out an emergency plan in but across the nation, to protest case of an attack. You could insist against the government, seek that your children’s school keep a change in the system, and vowing blueprint of its layouts and exits to make their voices heard and in case of emergency. You could their actions count in the war on also enrol in first aid classes so terror. The India Today Group’s that in times of a crisis you know Declare War on Terror campaign what to do. saw more than 95,000 people from It’s time you take the lead by all sections of society pledging sup- paying fines for violations that port. The anger and the outrage you commit. Don’t give bribes. At was palpable as well as the sense a time when people are calling for of fear and vulnerability. What capital punishment for terrorist they all feel is the desire for change acts, how many times have we but most are not sure how to get to decided to be part of the judicial a safe new world, individually or process that can take these cases collectively. The big question on to their logical end? everybody’s lips: Why was Mumbai Many high-profile cases do not 26/11 allowed to happen? reach their logical conclusion, There is more than enough due to back-tracking by wit- hope invested in the post-Mum- nesses. We should, therefore, de- bai welling up of patriotism, pose fearlessly before a court if sense of nationalism and the de- we witness a crime. sire to do something. What is Also, if you believe our politi- needed is a channelling of that cians should be made aware that public sentiment and finding vote bank politics can no longer ways to be part of it as concerned be employed to the detriment of citizens. The War on Terror national security, you need to cannot be fought, or won, unless pressure them to change their at-

A WELLING UP OF ordinary citizens internalise it. titude. Our bureaucrats and the NATIONALISM HAS It would be naive on our part police too need to be told that half FOLLOWED THE to expect our security forces to measures will not do; we need a MUMBAI OUTRAGE. keep a watch on every suspicious foolproof system that protects the AP PHOTO/DINO VOURNAS person or movement 24x7. Our common people. responsibilities as concerned cit- Peoples’ movements are an izens have increased in these incredibly powerful tool for As citizens, we can help troubled times. Do not postpone bringing about change and the the police verification of servants powers that be are fully aware of bring about the change and tenants as tomorrow may be the fact that the Indian public is we want by fulfilling too late. Similarly, with busy mar- angry and it demands systemic BE THE our duties and keeping ketplaces becoming terror change. You can help bring about Change hotspots, increased vigilance will the change you want, the change the pressure on the not only generate greater public we need, the change we believe Government to deliver awareness but also make you an in. It begins with you.

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Citizens Turn your concern into action. 20 simple Charter things you can do now, that can make a significant impact in our War on Terror:

1 MARKET SURVEY 11 MONITOR SECURITY Check whether markets you go Urge the management of your to are secure. Start a boycott children’s school and your campaign if they are not. office to organise copies of the buildings’ blueprints. 2 LEARN FIRST AID Enroll in a first aid course so 12 WATCH THY you can help in an emergency NEIGHBOUR till medical professionals arrive. Create a neighbourhood watch. Report suspicious activities 3 BADGER YOUR MLA and people to the police. Push your local MLA for more public security measures. 13 BE WELL-EQUIPPED Get the details of your 4 COMMUNITY Residents’Welfare Association WARDENS for use in emergencies. Volunteer to help in policing your neighbourhood by report- 14 CREATE AN SOS ing suspicious activities. HUB Make a list of the emergency 5 DONATE FREELY care centres in your area with Look out for genuine charities addresses, contact numbers. that are supporting victims of terror and donate generously. 15 BE DOUBLY SURE Employ people or rent out 6 TAB ON THE POLICE houses only after verification. Visit your police station and check if it has proper facilities, 16 CREATE NODES manpower and equipment to Define aggregation points in meet the challenge. the neighbourhood where peo- ple can collect in emergencies. 7 BE WELL PREPARED Undergo a drill on how to deal 17 MAP IT OUT with terrorists. Check with your Develop alternate routes to and civic authorities where to go. from work and school. Over 95,000 people have taken the WE,THE PEOPLE OF INDIA, 8 PROOF OF ID 18 COME FORWARD India Today Group’s pledge against Start a campaign to have DECLARE WAR ON TERROR TODAY. Depose as a witness if you have every citizen register under a observed terror attacks. We face the gravest threat as a nation. terror.To sign up clickon national ID card system. We pledge to www.indiatoday.in/war 19 BE PATIENT FIGHT against those who kill the innocent 9 REJECT CRIMINALS Expect delays and baggage SUPPORT measures that ensure our safety Pledge not to elect a candidate searches at public places and with a criminal track record. EXPOSE corruption and incompetence that endanger our security travel facilities. DEFEAT the enemy by having zero tolerance of terror 10 PAYYOUR FINES 20 EMERGENCY PLAN ELIMINATE the forces which propagate hate THE Instead of bribing officials, pay Develop a family emergency BE united in our resolve the fine if you are penalised. plan and practice it with friends. PLEDGE TILLVICTORY IS OURS

70 THE AGENDA

ACKNOWLEDGEMENTS

War on Terror The Agenda for Action was put together by the India Today Group’s editorial team consisting of

INDIA TODAY Raj Chengappa Bhavna Vij-Aurora Sandeep Unnithan Saurabh Shukla Shafi Rahman Mihir Srivastava Aditi Pai Swati Mathur and bureau support

MAIL TODAY Bharat Bhushan Manoj Joshi Anupam Srivastava Dipanjan Roy Chaudhury

INDIA TODAY GROUP ONLINE Kalli Purie Shailesh Shekhar

Designed and edited by the India Today team. We also thank all the experts for sharing their views.

For a full text of the document, click www.indiatoday.in/war