Threat To National Security

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February 2007 Vol 51

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Chief
Editor:
Editor:
Dr Sapna
Anurag Misra
N. Singh
Joint
Cover
e-mail:
Director
Design:
(Prod):
C.H. Patel
N.C. Mazumder
editoryojana@hotmail.com
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Website: www.publicationsdivision.nic.in
Let noble every side

Rig Veda
CONTENTS
THE PROBLEM 5 VIOLENCE: CENTRAL BIHAR : 44

Devendra Mishra & Subhash Sharma
ISSUES AND CONCERNS : 9
J&K WiNDOW 47
Manmohan Singh
SACHAR COMMITTEE REPORT 51
RURAL UNREST : 11
Imtiaz Ahmad
D. Bandyopadhyay.
BEST PRACTICES , 55
DEVELOPMENTAL WOES 15
K. P. S. Gill REFORMS MUST TO KEEP GROWTH BUOYANT 56
INTERVIEW: M.S. SWAM INATHAN 59

PANACEA COULD LIE IN PANCHAYATS 21
. L. C. Jain WOMEN AND PLANS : 61
DevakiJain
NAXALITE MOVEMENT IN INDIA , 23
Prakash Singh DO YOU KNOW? , 64
GREYHOUNDS 29 CYCLE RICKSHAWS IN DELHI 66

M. S. Shanker . Geetam Tiwari
AN INTEGRATED STRATEGy 31 RELIGIOUS SHRINES 68

R.K. Bho"nsle D. C. Bakshi
INDIA'S GORDIAN KNOT : 37 RURAL FINANCE IN INDIA 70.

Ajay K. Mehra G. S. Kainth
SECURITY IN THE AGE OF GLOBAL TERROR 41 IN THE NEWS , :. 72

A. S. Kalkat
Our Representatives: Ahmedabad: Dhiraj Kakadia, Bangalore: A.G Joshi, Chennai: I Vijayan, Guwahati: P. Chakravorty, Hyderabad: Khan Shakeel,
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2 YOJANA February 2007

About the Issue

HE GOVERNMENT has admitted now that its writ no longer ran in parts of 160 districts affected
T
- by Naxalites converting them into "Liberation Zones" and taking upon themselves the functions of
the state administration and police. Naxalism is seen as the single largest internal security challenge
ever faced by the country. -
Of the 13 affected states, the movement is intense in parts of Chhattisgarh, Jharkhand, Madhya Pradesh,
Maharashtra, while it is making inroads in Kerala, Kamataka, Tamil Nadu, Uttarahchal and Haryana. There
is growing professionalism in Naxal ranks and their attacking strategy.
, .
The National Common Minimum Programme of the UPA says that the Union Government does not
consider the Naxal violence to be a mere law and order problem and it needs to be tackled as a socio-
economic problem. The Naxalites will continue to breed internal unrest and upset peace till such time the
economic inequalities are not addressed. Studies show that the poorest of our people are concentrated in
the Naxalite belt from Bihar's borders with Nepal to Rayalseema in Andhra Pradesh. Unless their grievances
are addressed speedily, their resentment and anger would continue to fuel the Naxalites. Good governance
and effective implementation of development programmes are the key elements to counter socio-economic
causes of Naxalism.
The changes in character and style of the movement must be recognized. There is growing militarization
and superior army-style organization. This needs strengthening of local policing and intelligence gathering
system. Competent officer's need to be posted in the Naxalite affected districts and areas with stable tenure.
"Greyhounds" of Andhra Pradesh can serve as model to other affected states. Winning the confidence of
local population is another important area-. In several meetings called by the Centre of affected states, it
has emerged that the drive against movement have often been hit by the lack of coordination between
states and central intelligence agencies. The positive outcome of these meetings has been that the Centre
has now made it clear that it will closely monitor the implementation of counter-revolutionary strategies
in different states. Earlier the Union Government's role was only confined to sending paramilitary forces,
reirnburs~g security related expenditure to states and modernization- of police.
Addressing the meeting of Chief Ministers of naxalism affected states, the Prime Minister said, " our
strategy to handle Naxal menace has to walk on two legs - one, to have an effective police response and
at the same time focus on reducing the sense of deprivation and alienation", Another important point by
the Prime Minister was "The police response is necessary so that the obligation of the Indian state to uphold
public order is fulfilled. However, an effective police response does not mean that we need to brutalise
the Indian state". The time has come to translate Prime Minister's works into action to halt and curb the
spreading of Naxalism and allow.fruits of economic development to reach faster to the affected areas. 0
YOJANA February 2007 3

Leading.
f.romthe front .
4 . . YOJANA February 2007

The Problem
:"N"~;'~;~'i
~l.l - .
AXALITES OPERATE in a
vacuum created by
withdrawal from the peace talks and ~n
Chhattisgarh mainly owing to greater
sustain theIr fraternal and logistic links
with Nepalese Maoists, though there are
"::i .'-- ---- _. inadequacy of administrative offensive by naxalities to derail Salva no strategic and operational links
~: .---.< -- and political institutions, Judum, a voluntary and peaceful anti- between the two.
,ll-: 'espouse local demands naxalite m~vement by local people.
The naxalite leadership continues to
and take advantage of the prevalent
Recent Trends pursue their ideology to wage
disaffection and injustice among t~e
protracted people's war.through the
exploited segments of the population Spatial spread: Of the total 12,476
armed struggle to capture political
and seek to offer an alternative system, police stations in the country, naxal
power, while a significant number of
of governance which promises violence was reported' with 460 police
naxalite cadres are anti-social and
emancipation of these segments from stations in 11 states in 2005. During the
criminal elements, In the recent past,
the clutches of 'exploiter' classes current year so far, 372 police stations
naxalite groups seem to lay greater
through the barrel of a gun. have been affected by naxal violence. _
focus on organising along military lines,
Avaiiable reports, however, suggest They are also acquiring contemporary
Naxalite menace remains an area of
that CPI (Maoists) have been tryin~ to weapons. Their constant effort is to
serious concern. In 2005, naxalite
increase their influence and activity in upgrade technology and sophistication
violence claimed over 660 'lives as
parts of Kamataka, Kerala, Tamil Nadu of, their weaponry and techniques.
against 566 casualties in 2004. While
and Dttaranchal and also in new areas
the quantum of naxal violence The. latest taCtics adopted by the
in some of the already affected states.
registered a marginal increase of 3.8 per naxal outfits are to engage in
cent in 2005 over 2004, resultant After the merger of Communist Party simultaneous multiple attacks in large
casualties went up by 18.1 per cent. Marxist Lennist-People's War (CPML- numbers particularly against police
PW) and Maoist Communist Center of forces and police establishments.
In 2005, the states of Bihar and Iridia (MeCI) into CPI (Maoist) in
Jharkhand witnessed a few high profile September, 2004, they are reported to In the recent past, there have been a
incidents like looting of weapons from be trying to woo other splinter groups number of naxalite attacks on railway
the Giridih Home Guard training centre and have also consolidated their front infrastructure mainly in Andhra
(Jharkhand) and the J ehanabad organisations into 'Revolutionary Pradesh, Jharkhand, West Bengal and
jailbreak. However, the overall nax~l Democratic Front' (RDF) and People's Bihar, DetentioIl--of a train in March,
violence increased mainly in Andhra Democratic Front of India (PDFI) to 2006 Latehar District in Jharkhand was
Pradesh due to stepped up violence by intensify then- masS contact programme, also a serious incident even though it
naxalitt?s following their unilateral Indian naxalite groups continue to did not involve any casualties.
YO.J:ANA February 2007 5

The overall counter action by the Key Initiatives at the State Level
affected states. in terms of naxalites
killed, arrested, surrendered and arms I~~r::~bl:~~:~ ..i~t~:~~t~t:~o:~~~b:c' a~~~fopfuefl,t:iandjh~ti~e,
recovered from them achieved better
results in 2005 and 2006 so far, •. Ensure effective implem~;ntatioll of l~nd'leforms:P~nchaYllt (Extension
. however there is an urgent need to .. to Sched~IM Areas) A(;t (PESA) and formulation .of resettlement and
further improve and strengthen police rehabilitation (RR)policy for. displacea.tribaIS.
response particularly by the states of • fmprove governanceand'establishbetter deliyel)' systems for people
Chhattisgarh, Jharkhand, Bihar, Orissa, centric developme!?-tal activities in thenaxal affesteddistricts ..
Maharashtra by improving actionable
• Ensure proper andfUlfutilisation of ,fUnd~un4ery~rious developme~t~ .
intelligence collection and sharing
~,chemessuch as,Bharat. Nirman,!3DI! :BR;,GF',National R;?ral
mechanisms and strengthening their EmploYll,lent.GuaranteeScheine,PMGSY;. Mid (iayMeal Scheme;~tc.
police force~ on the pattern of SIB and
Greyhounds in Andhra Pradesh.
areas. This Scheme has been extended away the potential youth from the path
The Government has taken the
for a further period of five years beyond to militancy or naxalism, recruitmenC
following measures to improve poli~e
31 March, 2006. guidelines have been revised to perrni.t
and development response to control
40 per cent recruitment in Central Para
the naxal problem:- Supply of Mine Protected
Military Forces from the border areas
Vehicles: Keeping in view the increased
Police Response and areas affected by militancy or
casualties of police personnel and
naxalism.
civilians caused by lED/land mine
Modernization of State Police:.
blasts, the naxal affeCted states have Protection of Railways: In the
Funds are given to the states under the
been provided 80 Mine Protected wake of increased attacks on railway
Police Modernization Scheme to
Vehicles (MPVs) under the Police properties, the matter has been.
modernize their police forces in terms
Modernization Scheme. discussed with the Ministry of Railway
of modern weaponry, latest
communication equipment, mobility This supply has been streamlined by so as to take appropriate preventive
and other infrastructure. The naxal taking up the matter with the Chairman, measures in this regard.
affected states have also been asked to Ordnance Factory Board.
Salva Judum in Bastar region,
identify vulrterable police stations and
Long-term deployment of Central Chhattisgarh: An anti-naxal movement
outposts in mixal areas and take up their
Para Military Forces: In order to began in June, 2005 in' Bastar region of
fortification under the Scheme.
supplement the efforts of the states in .Chhattisgarh as a spontaneous
Revision of Security RelaJed providing an effective response to the expression of pent-up anti-naxalite
Expenditure (SRE) Scheme in naxal violence, Central Para Military sentiments among the local 'people. The
February, 2005: At present, 76 districts Forces have been deployed on a long- movement was triggered. off by a
in 9 states badly affected by- naxal term basis as requested by the affected meeting of eight villages. at Tebmar
violence are covered under this scheme. states. village in district Bijapur, whereas the
The level of reimbursement under the villagers expressed their unhappiness
India Reserve Battalions: The
Scheme was raised in February, 2005 with the modus operandi of naxalites
naxal affected states have been
from 50 per cent to 100 per cent and causing harassment and starvation of
sanctioned India Reserve (IR) battalions
new items like insurance scheme for common villagers due to cutting off of
mainly to strengthen security apparatus
police personnel, community policing, emploYII,lentopportunities. Salva Judum
at their level as also to enable them to
rehabilitation of surrendered naxaliies, activists mobilized villagers/tribals
provide gainful employment to the
expenditure incurred on publicity. to against naxals through a series of
youth, particularly in the naxal areas.
counter propaganda of naxalites, other rallies, meetings and padyatras in naxal
Ten additionaL IR battalions have also
security related items not covered under strongholds of the two blocks (Bijapur
been approved for the naxal affected
the Police Modernization Scheme etc., and Bhairamgarh). of Bijapur police
states.
were also included. The Scheme has district in South Bastar. This voluntary
enabled the states to improve ground Recruitment in Central Para and peaceful movement by local people
level policing in the naxal affected Military Forces: In order to wean has now spread into Bijapur,
6 YOJAN~ February 2007

.
.•....
.
this would go a long way in tackling the

Bhairamgarh, Usoor, Sulana and Konta .. fill in critical gaps in physical and social
development in the naxal affected areas. developmental aspects of the na;x.al
blocks in Dantewada district. So far,
Apart from these districts, other naxal problem. The states have been
Salva Judum activists have held more
affected areas/districts have also been requested to focus greater attention on
than 150 anti-naxaliterallies.
included under the Backward Regions this area as' also accelerate people-
Keeping in view the importance of centric developmental activities and
Grant Fund (BRGF) Scheme which
Salva Judum movement as a major create employment opportunities in the
covers 250 backward districts in the
bulwark in sustained campaigfl against naxal affected areas with. special focus
country.
muals and view of the naxalite attacks. on creation of physical infrastructure in
on innocent Salva Judum activists, the Tribal and Forest related issues: In
terms of roads, communication, power
state government has been advised t6 order to address the areas of
as also social infrastructure such as
enhance the deployment of. security disaffection among the tribals, the
schools, hospitals etc.
,forces to provide effective area government has introduced the
domination, ensure safety of S~lva Scheduled Tribes (Recognition of Conclusion
Judurn activists and strengthen security Forest Rights) Bill, 2005,. in The Central Government views the
of relief .camps. Parliament. Further, to facilitate naxalite menace as an area of serious
social and physical infrastructure in concern. The Government remains
Deve~lopment Response the forest areas, Ministry of firmly. committed .and determined to
Environment and Forests has, as addressing the problem. Essentially, the
Backward Districts Initiative
requested by the Ministry of Home .state governments would need to pursue
(BDI): Since the naxalite meanace has
Affairs issued general approval to effective measures to further improve
to be addressed on the developmental
allow such infr~structure by uti.)ising . ground level policing and development
front also, the Government has provided
up to I hectare of forest for non-forest response, besides countering the
financial assistance of Rs 2,475 crore
purposes. The Ministry has also negative propaganda unleashed by
for 5:\ naxal affected districts in 9 states
permitted upgradation of kutcha roads naxalites, to contain and control this
of Andhra Pradesh, Bihar, Chhattisgarh,
constructed intopucca roads. menace. The Central Government will
Orissa, Jharkhand, Maharashtra,
Land reforms employment continue to coordinate and. supplement
Madhya Pradesh, Dttar Pradesh& West
opportunities in the naxal areas: the efforts and resources of the state
Bengal under the Backward Districts
Naxal groups have been raising mainly governments on both security .and
lnitiative (BDI) component of the
land' and livelihood related issues. If development fronts to meet the
Rashtriya Sam Vikas Yojana (RSVY).
challenge posed by naxalism. 0
Under this Scheme, an amount of Rs 15 land reforms are taken up on priority .
crore per year has been given to each and the landless and the poor in the (Compilation by Editorial Team,
of the districts for three years so as to naxal areas are allotted surplus land, Yojana, English)
I
'Enact Naxal Surrender Scheme'
.T
.'.,'
....
I
-' - .
heU~~?n hbrn~~stryhas whether the naxalite has surrendered The .jh~khandGovebllnent has
, ...•....
requesiedalLrnajor naxal- with ..arms or without. arms. offered sops to naxals to surrender.
...........affect~~states'to strictlY '"i ," " The main componets ..are:
Major naxahaffected states already
im~lem~n tl~e .."suriender-cum- • M<>nthly allowance of Rs 2,000.
have surrender-cum-rehabilitation"
rehabilitati0l?:'l'\~chem~s!or ...naxalites • Rs 50,000 iIi cash.
schemes for naialites who' 'Wantto shun
whQwant to shu.n' violen~e and' join • Life insurance w?rthRs 10 lakh;
viole~Ce and jOin the mainstream. The
the mainstrearn. • \"ocati?naltraining f9f two years.
Centrel)as requested all Naxal-affected
state~overnme~ts to strictly implement • Lawyers tdfight th~rrc~es in court
The Gent,ralg()vernment
r~in~~urses, u~~er t~eses&lty-related .the;iheme. The Centre also provides • o;Zacre ag~cultur~t~ land.
assistance
.. to the state govemments. TPe • Free educa~gn ~d he:althf~cilities
exp~ndi~~re,s~reme .•~.~'.'.
the nax~l- ,- '--'" ,,~
affectedstat~~,~xpe~~tllre of. upto incentive packages vanesj'from. state-to for the surrenderednaxaliteand
Rs20,000 per'l'erson,dep~nding upon state. faniily.
7
YOJANA February 2007
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Rail VikasNigal11lil11ited
(A Govt. of India Enterprise)
First FloQr,August Kranti Bhawan,
Bhikaji Cama Place, R.K.Puram, New Delhi .. 110066
Tel:91-11-26182963~26182969,2~182970,Fax:-26182957, Website: www.rvnl.org
Creating Rail Tran~port Capacity ahead of Demand ~ , "-"f
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8 YOJANAFebruary 2007
I:ssues and, Concerns

Manmohan Singh
rr"
, HE FOREMOST concern
to-day is internal security,
; "The Centre and the States
" , must jointly find solutions to
intelligence generation and collection,
as also the overall strengthening of
intelligence mechanism. Analytical
capabilities need to be enhanced.
problem needs a blend of firm, but
sophisticated, handling of naxalite
violence with sensitive handling of the
developmental aspects. It is'in the most
• " the problems we face, Proper benchmarks need to be neglected areas of the country that Left
established against which progress and wing extremism thrives today. These are
The country confronts a wide array also the main recruiting, grounds for
performance can be measured.
of complex internal security problems naxalite outfits. While Chhattisgarh,
and threats, Each of these need to be The meeting mainly.focused on Left
wing extremism, terrorism, and how to Jharkhand, Bihar, Orissa and Andhra
dealt with in different ways, Pradesh are in the forefront of naxal-
- Inc'reasingly also, they call to.r closer assuage feelings' of insecurity among
our IJ?inorities, specially Muslims. The related activities today, many other
cooperation between the Centre and the states remain vulnerable: .Chief
states, since problems are no longer developments in the North East and
Jammu & Kashmir. also need to be Ministers must personally take in hand
confined to a single state but encompass what deliverables are possible even
several states, Integrated functioning in reviewed.
while preparing to meetnaxalite
a federal set up such as ours, where law The Chief Ministers of'the North-
violence through effective law & order
and order is a state subject, is not easy Eastern states and J&K shall recognize
measures.
but we must' find ways and means to a fundamental. reality, namely, that in
deal with this situation and rethink some dealing with problerns of peripheral The real key in the fighting naxalite
of our past practices, states and societies, we need to be violence is' 'good' intelligence. This
specially sensitive to the nuances of , would involve effective integration of
Internal Situation each situation, and the encyclopedic strategic and tactical intelligence,
To improve matters, the main stress character of regional and tribal demands properly leavened with ground level
has. to' be on capaCity building and which, if not anticipated and dealt with 'information avaj.lable at the level of the
improving the capabitity of the states . in time, could culminate in a full- Police StationS. The Police is the first
(as also thatofthe Centre) to deal with fledged militancy. States like Mahipur responder in naxal-related situations,
current and future .problems, Capacity- and Nagaland in the North East appear and is a: very important pole. in this
building at the state level is most specially vulnerable today demand your enti~e effort: Sensitiiing the PoliCe is,
crucial, and if there are any financial personal attention. There is little scope therefore, a criticai require~ent.
, constraints, the Centre would be willing 'for personal predilections that override
Special training for Forces engaged
to provide necessary assistance, Out national considerations and
in naxalite operations is equally
understanding, however, is that the states requirements.
important. Andhra Pradesh has an
are not doing enough even regarding the The same can be said of J&K. Even excellent training establishment for anti-
filling up of existing vacancies in the though the situation has shown signs of
naxalite operations.
Police and otherlawand order agencies; improvements these past two years, we
or improving the quality of the state should remain on our guard in view of An 'Empowered Group' of Ministers
, Sp~~cialBranches, or toning up -the law continuing efforts by anti-India and is constituted which could be headed by
.and order administration, Without anti~national elements to whip-up the Home Minister, imd include select
effecti ve lmv and. order; economic emotions' and transform these into a Chief Ministers, to closely monitor the
development would be impossible. violent movement. spread of the naxalite movement .. The
More attentiqn is needed to improve Group could meet at frequent intervals
Naxalite Movement and review special measures that Heed
the 'software' for the maintenance of
peace,. This means improving The approach to the Naxalite to be taken, nature of assistance ,to be

2002
l-+ No. oflricidenls

Head
No. of Incidents
Policep'ersonllei ..killed
Ciiriiianskiiled
Naxaliteskilled
Source: Ministry of Home Affairs (MHA)
provided. exchange of -personnel kind of unusual activity. Siplliarly, co- communities to agree to a proper
between States. opting the media and getti~g them to articulation of 'sacred values' for
play more positive role would be useful ,dissemination among people. Both
Terrorism and this should form part of an overall education and the mass media must be
Concern about the increasing media management strategy. None of actively encouraged to promote, this
activities of externally-inspired-and this will, however, happen without your integrated vision.
directed-terrorist outfits in the country personal direction and involvement.
W
e must recognize that the
is justified. Intelligence Agencies warn
On the prevailing insecurity among Muslim community in large
of a furhter intensification of violent
minorities, specially Muslims, the parts of our country nurses a
activities on their part, with the
adverse consequences of this can be strong grievance of not having been an
possibility of more 'fidayeen' attacks;
extre~ely deleterious for out polity. The active participant and beneficiaries of
use of suicide bombers; attacks on
responsibility to ensure that this does processes of social and economic
economic. and religious targets;
not happen lies squarely upon all of us. development. All of us have an obligation
targeting of vital installations, including
It is unfortunate that terrorism has to redress legitimate grievances of our
nuclear establishments, Army Camps;
resulted in certain sections of our minorities. CMs must pay personal
and the like. Reports also suggest that
populations being targeted, with the attention to ensuring that our minorities
terrorist modules and 'sleeper cells' exist
result that a wrong impressi,on has been are effective partners in processes of
in some of our urban areas, all of which
created of the radicalization of the social and economic change. In dealing
highlight the seriousness of the threat.
entire Muslim community. It is, hence, With terrorism, scrupulous regard and
These are serious matters and we imperative that we embark immediately respect for fundamental human rights of
must find ways and means to deal with upon a proactive policy to ensure that citizens, particularly of minority
these decentralised micro-terrorist a few individual acts do not result in communities, ought to be a core concern
outfits. This will necessitate greater tarnishing the image of an entire of our law enforcement agencies. No
alertness on the part of the States and community, and remove any feelings of innocent person should be harassed in our
local Intelligence Agencies, as, also the persecution and alienation from the' struggle against terrorism. If a mistake is
Police who have a locational advantage. minds of minorities. made, effective. remedial corrective
Unless the 'best constable' is brought measures must be .taken well in time.
All religions recognize the existence
into the vortex of our couIiter-terrorist of certain 'sacred values'. We should Government agencies, particularly law
strategy, our capacity to pre-empt future seek to highlight the commonality of enforcement agencies must establish
attacks would be severely limited. intimate contacts with community leaders
such 'sacred values' and campaign
In the battle against terrorism, the against pernicious ideas and and show adequate sensitivity to their
role of the public will be vital. A major philosophies such as the "clash of concerns. CMs ought to put in place
effort is necessary on our part to civilizations". Instead we should effective mechanisms to achieve these
sensitise the public into becoming allies propagate the idea of a: 'confluence of objectives. 0
in this war and persuade some of them civilizations' .'Sacred values' are. ideals (Adapted from Prime Ministers opening
to function as counter-terrorist which are transcendental in nature. We remarks in the Chief Ministers'
'wardens', who would report on any should encourage sober elements in all Conference on Internal Security.)
10 . YOJANA February 2007

Rllral Unrest
D Bandyopadhyay
EASANTS DID not some states has exacerbated the

disappear. Tribals' could not incidence of landlessness with the
be assimilated with the consequential rise in the free floating
mainstream populace. Dalits mass of rural poor moving around in
continue to be the landless search of employment. This has
hewers of wood and drawers of water depressing effect on rural wages and
for the upper classes and castes. The has aggravated casuaUsation of labour
projected trajectories of the on terms grossly unfavourable to them;
development. paradigm .of large scale This is supported by different rounds of
'withdrawal of surplus labour from the NSSO data on agricultural wage from
rural areas to be absorbed in the 1983 to 2000.
massive development of the secondary
Victims of development - the project
and tertiary sectors had gone awry.
affected people (PAP) - add another
Fifty eight per cent of the Indian unpleasant dimension to the scenario of
labour force is still engaged in rural alienation and turmoil. There is no
agriculture and allied occupations. fIrm official fIgure regarding the total
The. smouldering Tribals are being pushed up the hills number of PAP rendered landless due to
because of illegal incursion of outsiders coercive acquisition of land by the State
ember of rural in their traditiDnal domain. Dalits for "development" purposes. Scholars
continue to swell the ranks of have made various estimates. The
unrest in India can agricultural prpletariat which is generally accepted fIgure (calculated by
be doused by proper increasing in an alarming way. 'Poverty
ratio among the SCs and STs continue
Walter Fernandes) is that between 1951
and 2005,50 to 60 million persons were
action undertaken to be much high~r at 35 per cent and forcefully evicted from their hearth and
44.2 per cent respectively as against the home. It is it colossal fIgure. It is more
with understanding. national average of little over 26 per than the total population of majority of
cent. Neo-libeJ:al development pro.cess the member countries of the United
and sympathy, totally by-passed them. Not only that Nations. Among the PAPs tribals
dialogue and the invasion of the corporate sector into constitute 40 per Cent. The absolute
.
reasoning
agriculture and forestry and
enhancement of ceiling limits on land in
fIgure would be 20 to 24 million out of
the total tribal population of a little over
T1ly author is Executive Chairper~on and Hony. Director, Council for Social Development. He is the Chairman of the'Planning
Commission, Expert Groilp on Development issues dealing with discontent, unrest and extremism." , ,J, ' ..•
YOJMrA February 2007 11

80 million. It appears that the main which traditionally gave sustenance to jobless. It is not surprising, therefore,
brunt of the adverse effects of the tribals. that social unrest has emerged. in the
development had to be borne by the Tribals lost their control of affected areas. It manifests itself in
tribals who had the least sustaining traditional livelihood resources throughdefiance of the authority from simple
power.Not only that, it is estimated that form of demanding right of community
several state actions. First is the forest
of the 50 to 60 millionPAPs only 28 to reservation policy which declared managementof forests to militancy.The
30 per cent has been properly resettled forests, degraded forests,waste lands onState cannot avoid the responsibility of
and rehabilitated. This is bad enough. the periphery and even partly arable creating conditions in which in sheer
The situation in the case of tribals is far lands as reserved forests where hhman desperation and rage, tribals resorted to
worse. It is estimated that only 18 to 20 habitation was prohibited. These, violence.
per cent of them had been properly reserved areas sometimes included Half way across the globe in the
rehabilitated. Thus a vast number of villageswhich were allowedto continue Chiapas region of southern Mexic'o
displaced, homeless, landless and without any right or title and which . indigenouspeople declared in 1980"we
jobless tribals are roaming about as supplied free or cheap labour to Forest demaI).d absolute respect for our
flotsam and jetsam of the cruel Department and ) to forest persortnel. . communitarian self-determination over
developmentprocess.They are depressed
and dejected, irritated and angry. The second means of alienatiop was our lands, over all our natural resources
the leasing of forest lands to the and over the forms of organization that
Tribals did not have any concept of . corporate sector for mining, processing we wish to give ourselves We
"exclusive title or possession within industries, agri or forest based business, are opposed to have our natural
community. Ownership was best logging. and timber felling or for resources plundered in the name of a
understood as mutual respect and tourism ventures. Tribals were denied supposed national development" (Bart.a
recognition of access of an individualor access to pasture lands and forests A & Otero.a, 2005).
family to a separate plot of land to be which had been providing 'them with The demands of the Chiapas
used for special requirement of the livelihood. indigenous people in Mexico fully
family" (Prabhu 2002 from
.ThirdlY; there were the draconian represents the aspiration and demands
Reclaiming Land)
laws regarding wild life. of 80 million tribals of our country as
Extension of general laws and their protection and national parks well.
accompanying institutions to the and sanctuaries which forcefully
Our old national leadership was well
Scheduled Tribal areas created a hiatus excluded all habitations from vast areas
aware of it. Way back in 1942
between the "modem" laws and their notified under these laws. By a sly of
Mahatmaji wrote in Harijan (18-01-
agencies and the traditional mode of hand of the forest authorities local
1942) "The Adivasis are the original
tribal life and living style. This resulted rightful residents became interlopers or
inhabitants whose material position is
in a conflict between the traditional encroachers on their own lands. The
perhaps, DO better than that of Harijans
systems and the formal institutions, . traumatic reversal of the position from
and who have been victims of neglect
esp«cially with regard to the rights of rightful owner -occupiers to illegal
on the part of so called high classes.
tribal people over land and resources on encroachers pushed the affected people
The Adivasis should have found a
which they had subsisted for centuries to desperation to use any means to vent
special. place in the constructive
without formal ownership deed or title. their resentment. In some places this
programrrie" (Gandhi, M.K. - India of
Beginning with the colonial time and deep human tragedy was compounded my Dreams, Navjivan Trust, 1947).
continuing in the post colonial era, the by the extinction of the species for - Orily Mahatma could have the moral
intrusion of formal economy with which such cruel methods were used. courage'during the freedom struggle to
privileged individual rights and R~nthambore provides an example own up that the society had neglected
individual or corporate profit motive w~ere with the exclusion local tribals die Adivasis. It is not therefore strange
has systematically undermined or the tiger population also disappeared. t6 find in the Party Programme of
subverted.the' informal. communitarian The story 9f Sariska is not different, Central Comnlittee (P) of CPI (Maoist)
system of the tribals and their either. - dated 21.092004, the observationthat
livelihood. This crisis has been further Lastly, as already noted the coercive "The State will ensure various forms of
aggravated by the recent influx of , acquisition of land for "development" autonomy to all Adivasi communities
individuals and corporate bodies into purposes has already displaced about for their full fledged development and
the tribal domain and their take over of 80 to 90 million tribals turning them execute special policies accordingly".
tribal lands and other natural resources homdess, lalldiess, resourceless and Why sh~t'ld it beieft to CPI.(Maoist)
12 , YOJANA, February 2007

<--
or any odler militant group to do so ? Employment in the organized sector contracts; Incidentally, the protagonists
Can't the mighty Indian State do it? increased very slowly from 24 million of this move in the State machinery
in 1983 to 28 million in 1999-2000. It should do well to remember that about
Common Property Resources (CPR)
meant an annual average incremental 90 years ago in 1917, Mahatma
where every member of the community
growth in employment of little over 2 Gandhi's first public action in India
had easy access and usage facility used
lakh,per yem:, which was insignificant after coming from South Africa w3;s to
to be an integral part of the social and
compared to the annual rate of growth , fight for the cause of peasants of
economic life of the village poor,
of labour force. It is now recognized Champaran in Bihar against unfair
particularly, for the landless and land
that in the era of "jobless growth" the terms of contract imposed on them by
poor households. Among the landless
organised sector's capacity to absorb the European Indigo planters.
vast majority belonged to'Dalit groups.
surplus labour would remain minimal to Advocates of this system should also
Some scholarly studies have pointed out
nil. As a result under compulsion of appreciate that between two unequal
that dalits are concentrated among the
circumstances the vast majority of partners there cannot he any fair
landless agricultural labourers because
additional labour force will have to be contract in favour of the weak.
under the traditional caste system they
absorbed both in the farm and non-farm
were excluded from ownership of land. Land ceiling laws have been
segments of the rural economy and in
Consequently, for sheer survival they implemented in a tardy and improper
the unorganised segment in the urban
had to depend heavily on the CPR. A manner in our c"ountry. Only 7.35
areas.
study of seven states in semi-arid areas million acres of ceiling surplus land
indicated. that CPR accounted for 9 to
I
:twould have several adverse were vested in the State (March 2002)
26 per cent of household income of :consequences. This large army of of which 5.39 million acres were
landless and marginal farmers, 91 - 100 landless workers would tend to distributed among 5.65 million
per cent of their fuel wood requirements _depress rural wage rates thereby beneficiaries. Even distribution was not
and 69 - 89 per cent of the~r grazing accentuating poverty as already done, correctly. In many cases
needs (Jodha - 1986, Reclaiming Land). mentioned. It would also increase the beneficiaries with "patta" in land did
number tenancies with harsh and not get physical possession of the land
However, this CPR is getting
. extortionate conditions and terms. The allotted to them. Old owners continued
increasingly scarce through state
NSSO figure of 7 to 8 per cent of to possess and enjoy the usufruct of
possession or privatization including
tenancy is generally recognized as gross these lands. Worse still are the"cases of
corporatization. In different states
under-estimation. Micro-studies by well the same vested land being distributed
corporatiions are being given huge tracts
known scholars indicate that the to different sets of beneficiaries at
of so called waste land, degraded forest
incidence of concealed tenancies vary different points of time, of course, giving
land and semi-arable lands which
between 15 to 35 per cent in different no physical possession to anyone -of
constituted CPR for the dalits and the
states which have formally abolished them. It only made the poor to fight the
village poor; This has badly affected the
tenancies. Extremely severe forms of poor so that the erstwhile landlords could
economic positions of these people.
exploitation are noticed in respect of. lord oye!: their former estates.
Neo-liberalism has put the dalit and
these "inyisible" tenancies.
agricultural wor~.ers under triple
Land holdings after several decades
jeopardy of social, economic and Expropriation of CPR for handing
of implementation of ceiling laws still
political exclusion. Exasperated and over the land to corporate sector for
remain highly skewed. In 1995 tiny
desperate dalit groups constitute the agri-business or industry has caused holdings constituted 78 per cent of the
tinder dry flammable substance' depeasantization among the farming
tota} operational holding and
awaiting a spark to i~te. communities and accentuated commanded 32 per cent of the area.'
immiserisation of already poor landless Thus 22 per cent of operational holding
The overall employment situation in
and. marginal farmers most of whom
the rural areas is rather bleak. Out of the controlled 68 per cent of the arable
belong to dalit groups. Depeasantisation
total labour force of 363 million (1999 land. While figures clearly justify
directly increases landlessness and
- 2000) in the country, 251 million further reduction of land ceiling and
acute poverty coupled with
workers were employed in -the rural rationalization of various categories of
assetlessness results in debt bondage.
,areas. The primary sector employed land for ceiling purposes, under the
roughly 58 per cent of the total labour Active encouragement of the state pressure of neoliberal economic
force. Development of secondary and for "contract farming" is putting, self- policies different states are doing the
tertiary'i;'eC'tors could not absorb the employed autonomous peasants under opposite by enhancing the ceiling limits
surplus labour from the primary sector. harsh and often disadvantageous in the name of commercialization and

modernization. of. agriculture. Thus the Another major cause of rural based intellectuals. Their tactic is,
possibility of getting a parcel of land by discontent is the trident of mal- predominantly direct action centeri~g
the landless for minimal livelihood and governance by the Forest, Revenue and round direct physical occupation of land
household food security is becoming the Police administration. Rajiv Gandhi and other natural resources. Some 'of
dimmer by the day. pithily described the situation. He them have opted for armed struggle like
observed "the experience of the vast the CPI (Maoist) in India. Zapatistasin
Apparently, in different' parts of the
majority of our people at the grassroots Mexico and the FARC in Colombia.
country' in different depressed and
have been that, at the interface between Their strategy is autonomy from the
oppressed groups, there are kegs of dry
the 'people and .the 'administration, the established political parties and the
powder waiting for fire to set in. But the
administration is unresponsive, state. This line is being followed by the
flaming bush fire is not taking place as
inefficient, unsympathetic, often rural movement in the Philipplines,
there is a lack of country-wide political
callous, sometimes even cruel to those India (CPI-Maoist), South Africa, the
mobilization among the landless and the
whom they meant to serve". The Zapatistas in Mexico 'and MST in
deprived. Instead of being united on the
situation is far worse in the tribal areas . Brazil.' Their ideology' tends to fuse
.basis of class, the poor are fragmented'
Marxism with the local brand of ethnic
along caste, ethnic, religious and other What we are witnessing in India and
or racial discourses. They are quite.
divisive lines. Moreover, land struggle some Latin America~ countries in' the
sensitite to gender and ecological
tend to differ for different interest form of rural land movement of violent
issues. In fact there is a conscious effort
groups. Landless strive for land nature is basically the "third wave" or
to indigenize the Marxian theory to the
ownership. Tribals and indigenous left politics (Moyo & yeros, 2005).
specifidocal situation (Moyo & Yeros,
groups strive for the protection of their When the agrarian crisis is becoming
. 2005).
traditional righfs on forest and other more acute, there is a deepening of
livelihood resources. Marginal and political vacuum in the country side. Long ago Mao Zedong propounded'
small farmers strive not only to retain Traditional parties of the left which had the 'thesis of "Fish in Water". "Fish"
their land but also to make it more a rather nebulous relationship with the were rural militants. Disgruntled
productive and to acquire and, or, to dispossessed in the countryside have, by disaffected and resentful poor peasantry,
enhance their political power and. and large, succumbed to the. logic of agricultural workers, forest dwellers,
influence. Thus with disaffection all capital either to obtain power or after displaced persons and the like"
around th,ere being no coalescing of obtaining power, eschewing Marxian constituted the "Water". If their
interests and objectives, no combined Left policies, though many of them still disaffection could be removed or
determined J;Ilovement was possible to carry the name of Marx in their breast substantially reduced water would
seriously threaten the establishment. plates .. evaporate and the fish would be left
high and dry and they would cease to
hi an agrarian economy like India land They are openly and unashamedly
exist eventually. Since almost all the
confers personality'tO"all individual or a promoting neo-liberalism in its crude
demands and grievances of the tribals,
group. It endows 'social respectability. It form discarding even the fig leaf of
Dalits, landless' agricultural workers and
is a means of political empowerment. It egalitarianism not to speak of socialism.
the.like could be met and resolved'
is the ,basic ingredient of a dignified life The "third wave" of virulent left politics
within the parameters of the
and living. Hen-ce a just and fair is the direct result of the traditional
Constitution and existing legal and
distribution of land resources is of left's subservience to the needs of
policy frame, a responsive and
utmost importance for building ~n capital :exhibited. through their
sympathetic political leadership at
egalitarian and strife - free society. It is adherence to the neo-liberal economic
different levels can solve the issue of
for the state to arrange for equitable . reform policies.
rural unrest if they had the will and if
redistribution of hind and water The social base or this new they could transcend their proximate
.resources and to restore the traditional movement which includes the Maoists' class interests. The smouldering ember
livelihood rights of the tribals in" the of India, is the masses of rural poor of rural unrest in India can be doused
forest areas. Unmet just demands may Jallen by the wayside because of by proper 3lction undertaken with
provoke the sufferers to use force relentless pursuit of',neo-liberal understailding and sympathy, dialogue
whether for occupation of land or for economic policies. Its leadership is and reasoning. Harsh counter violence
exercising rights over forestry largel y. confined among: the. peasant might not be the correct response as it
resources. The ruling establishment intellectuals who have disassociated had failed so far duting the. last four
cannot avoid "t;akingresponsibility for its . themselves from the established decades since the "Spri):g thunder" of
failure to read' the writing on the wall .. political parties and their university 1967. 0
14. YOJANA Feb~ary 2007

Developmental Woes
K P S Gill
NDIA'S MOST significant strength and capacities to deal firmly

sequity challenges, today and and effectively the scourge of terrorism.
in; the foreseeable future, are Soon enough, however, the incident is
internal, although, with hostile forgotten and there has been little
ne~ghbours constantly fishing noticeable change in the basic structure
in troubled waters, these have a of national responses to terrorism over
considerable external <;limension as the past decades.
well. Terrorism and sub-conventional
The political discourse on the
warfa!e ar~ the most important and
subject of terrorism reflects a range of
dangerous manifestations of this threat.
utterly fruitless peculiarities. Other
As time passes, we h~ve seen. terrorist
civilized countries and communities
strategies, tactics and access to
across the world have made the fight
technologie~ systematically improve the
against terror an article of faith, where
lethality arid disruptive efficiency of
,the political establishment has risen
their attacks, even. as. evidence of
above petty and partisan politics, giving
continuou~ state support and
priority to the fate of the innocent and
sponsorship by Pakistan and
vulnerable over their own personal and
Bangladesh mounts. Each new terrorist
political fortunes. The inteUigentsia and
,outrage - ~specially when it occurs in
the administration - including justice
. India's ciries and not in neglected
administration - in these societies,'
Public 'hinterland; areas, where such things
while they have,remained committed to
have become a daily norm - provokes
expenditure needs a hysteria of analysis and of polltical
fundamental values of democracy, have
recognized the grave and extraordinary
to be directed _ posturing.
threat to civilization that terrorism
constitutes, and have adequately
forcefully to the . As terrorist capacities augment,. there
empowered the executive, intelligence .
is a palpa~le expectation after each
creation of major incident that, this time, something
and enforcement agencies to deal with
the challenge.
will change; the Government will
productive assets announce ~ome new set of measures There is little evidence that the ruling
in India's villages and policies.J:hat will create the national and 'intellectual' claSses in India will do
The author is former Director General, Punjab Police and is President of the Institute for Conflict Management; New Delhi. He is
cum:ntly Adviser to the Government of Chhattisgarh on Naxalism;

Click here to unlock PDFKit.NET 1,
this in the foreseeable future. The Indian will be limits to their willingness for There is, of course, SOme evidence
politiCal perspective and agenda on sacrifice if they find that the very' of positive movement in certain
terroriSm remain unalterably muddled. people, powers and institutions that they spheres. A new Police Act, long
The political classes in India, ftght for, and so often die to defend, are overdue, has now been drafted - though
unfortunately, seek to make political careless of their needs and their it has visible and enormous flaws.
capital out of everything, often and concerns. And 'such carelessness is Funding no longer remains a bottleneck
increasingly to the detriment of the ~anifest everywhere, as the political for police and security forces'
national interest. But a consensus across classes remain concerned exclusively modernization - though the utilization
party lines is necessary on the issue of with their own survival, security and of funds is riddled with inefficiencies
terrorism and on counter-terrorism proftt~ rather than with the wellbeing of and leakages. Coordination between the
policy. Terrorism is a problem that has the nation"s fighting men, or of the Centre and State Governments shows
been, and will remain, with us for many nation itself. It would be difficult, today, signs of improvement, though points of'
years, and alternately burying our heads to ftnd.an example of a political leader friction persist. The general awareness
in the sand, or responding with hysteria, who has raised issues relating to the among the political classes and Central
can only undermine public confidence interests of security personnel, or even bureaucrats regarding the threat and
in the state machinery. Western concerning the necessary powers, dimensions of terrorism. in the country
democracies have, virtually on the ftrst equipment .and facilitiesrequired by appears to be rising, slowly but
sign of terrorism on their own soil, these forces to secure. effectiveness consistently. While a confusioQ of
immediately. secured a consensus on against an enemy that is constantly perspectives 'persists, early signs of
response, establishing necessary and availing of the very latest techriiques, some emerging coherence, at least of
elaborate legislative -instrumentalities, technologies and processes of intent if not policy, are becoming
and empowering their enforcement modernity. On the other hand, you will visible.
machinery to the hilt. On the other hand, find numberless leaders and public
N
after decades of terrorism on Indian figures who are willing to speak the evertheless,the long-promi.sed
soil, we continue to muddy issues and language of the terrorists and their 'synergy' between various
engage in the game of mutual apologists; who constantly exhort us to security forces, and between
recrimination and populist posturing. understand 'root causes' and the the states and with the Centre, remains
Terrorist organisations across the world motives of 'our children' and 'our a chimera, even as systems of command
are linking up and establishing an brothers and sisters' who inflict mass and control of counter-terrorism forces
immensely c.oordinated and globalised murder on innocents. remain inchoate. It is useful to notice,
network - but we fail even to secure a in this context, that, in areas of multi-
minimal agreement on, or coordination. Today, so many of those who bravely force operations involving the Army, the
of, national responses. fought terrorism have been abandoned 'unified command' model remains
to the mongrel formations of the dominant. This structure, in practice, is
T
he upshot is that, wherever terrorists and their 'human rights' fronts, patently violativeof the Constitutional
. terrorism rears its malignant and to the vagaries of a flawed and scheme of the supremacy of civilian
head, more and more troops deeply prejudiced judicial system; and authority in all matters, including
from the country's various security the weight of national institutions internal security and counter-terrorism.
forces are simply throWn into the appears disproportionately to be exerted The unifted co~and has traditionally
conflagration, .willing sacriftces to the to beneftt those who are intent on the meant the supremacy of the Army and
1"'" .
state's failure to evolve effective and destruction of these very institutions, . the subordination or marginalisation of
proactive mechanisms' for the rather than those who s.eek to protect state police forces and para-militari~s,
containment and neutralization of this them. Today, it is the terrorists and their and has not been conducive to better
spreading affliction. proxies who are best protected by our operational coritrol in theatres of multi-
legal and institutional safeguards, and force operations. It has had only limited
But the 'security forces' are not the by our political orientation; innocents, succe"sses in bringing an end to
faceless, formless, mechanical 'force' national assets - both institutional and terrorism or insurgency anywhere.
th~t the media, the politicians and the individual - and the men who ftght to Nevertheless, this remains the preferred
general public think them to be, to be defend the staty, are often left to their model of command and control
pitched into' the void at will. Human own devices in the face of a merciless wherever the"Army is depl6yed,and it
beings make up these forces, and there and unremitting onslaught. is time for a radical review, and the
16 YOJANA February 2007 .

Naxal Violence in C.hhattisgarh

-- 700
----
400 - ~
__
-
:-..
350
300 ......... ---- 600
..
-------
....
--------
500
250 400
'.
200 -
150 -
100 -
.
.
~ --"
300
200 -----
50 -
0-
., -
100
0
- ,
2005(31.11l.2005) 2006 (31.10.2006)
2002 2003, 2004 2005 "
I-+- No. of Incidents -.- Police personnel kiUed.••.•••Civilians kUled "*"' Naxalites killed I I -+-Incldents -'-Pollce personnel killed --- Civilians killed "*",Naxalnes.killed l
~
Head 2002 2003 2004 2005 Head 2005 (31.10.2005) 2()06(31.10:2006)
No. of incidents 304 256 352 380 No. of incidents 319 .'627"
Police Personnel killed 09 30 08 47 Police Personnel killed 45 .' 73
Civilians killed 46 44 75 118 Civilians killed 94 292
Naxalites killed 10 08 15 32 Naxalites killed 23 52
-MHA
adoption of a more effective model of 'modernization' of police and itself to greater diversion and 'leakage'.
coordination and cooperati ve paramilitary forces. 'Modernization' is, Modernisation, moreover, is not
command. in fact, a misnomer for what is simply a matter of buying better weapons
The Central Reserve Police Force happening, and this can at best be and technologies. The modernisation of
(CRPF) has now been designated the described as 'technology enhancement' . systems and minds has entirely escaped
lead agency for countercterrorism and The technologies that are being passed the scope of current efforts. Often and 'in
counter-insurgency operations across out to the forces in the name of certain areas, modernisation may demand
the country, and continues to be modernisation are often 30 to 40 years a discarding or diminishing lethalitjof
deployed in all major theatres of old, and even in the sphere of emerging weapon systems, rather than their
violence, including Jammu & Kashmir technologies such as communications, continuous enhancement. More
and the Northeast, where the unified the acquired models' are often on the significantly, the manpower profiles;
command structure is applied. Even in verge of obsolescence by the time they management systems, strategies,
states where the Army is not present, as are made available. Considering the methods and protocols for security
. in Maoist affected areas, problems of sheer pace of contemporary forces, their respon~es and
inter-force coordination, as of inter-state technological transformation, it is administration, need to be extracted
coordination, persist. These have been necessary to set up a special committee from the primitive constraints of
repeatedly underlined by the political for continuous technological evaluation inherited systems, before we can shape
leaderships both of the affected states and acquisition. Technologies today are effective counter-terrorism forces and
and the Centre, but little headway has shackling rather than enabling the responses.
been made in securing the necessary Security Forces, and large proportions
F
or years now, the national
'synergies'. The CRPF is still to secure of funds are completely wasted.
leadership has been deluding
the wherewithal, the mandate, and the Another aspect of technology itself, and misleading the nation,
institutional Jransformations necessary acquisition is its centralization, which into believing that terrorism is
to meet the demands of its new role. has meant, delays, the acquisition of something that can lend itself to an easy
The prob~em is an .approach that is, unsuitable technologies and corruption. solu~ion' across the negotiating table ...:.
at best, piecemeal and accretionist, As corruption in p).lrchases rises, it - with Pakistan, with terrorist front
seeking the arbitrary augmentation of rather than the requirements on ground organisations, and with terrorist groups
specific capacities - principally begins to detennine which themselves. The truth, however, is that
manpower, weapons and technologies - technologies are acquired, and this is these are long wars of attrition, and
froni time to time, in response to tremendously demoralizing for the there should be no doubt whatsoever of
particulilr emergencies, and without forces. Modernisation funding, the malevolent vision or of the
reference to a coherent gameplan. The moreover, must become more specific determination of India's enemies to
lacunae in this approach are manifested, and must be released for use under keep these wars alive. These are
for instance, in the pattef:lls of separate heads. 'Lumped' funding lends protracted wars, which will require an

effective and enduring state apparatus to the Government's extension networks in with the booming urban economy, and
create powerful instrumentalities to hunt areas of conflict simply collapses, through this, to the globalizing world.
down and destroy the terrorists, and to particularly in the rural hinterland, the
impose unbearable costs on their endemic 'ieakage' of developmental It is crucial to understand that law
supporters and sponsors. Unfortunately, resources across the country is and order is a precondition for, and not
we seem to be moving in exactly the magnified even further in such areas, as a consequence of, these conditions, and
opposite direction, as appeaseme~t of systems of accountabIlity disintegrate; must be maintained across the country
the' enemy dominates our political a vast proportion of the developmental and throughout the year, not fitfully,
vision, as security agencies are allocations actually find their way to when a particularly urgent challenge
constantly asked to operate with their insurgent and anti-state groups and little confronts us, or when a high profile
hands tied behind their backs, and as the benefit eventually accrues to the target target or victim is affected. Unless
enveloping environment is made more populations. ,Essentially, fimilly, you disruptive anti-state violence is
arid more conducive to exploitation and cannot 'out-develop' a full-blown contained and conditions of security
operation by terrorists. insurgency. prevail, ilone of the other terms for this
process of reconstruction can be met.
Another aspect of the Indian political
B
ut there is an even more
discourse on terrorism is the false fundamental difficulty with The military thinker Carl von
dichotomy that is created between the this approach: a modern Clausewitzwams us that, in war, "the
'military vs developmental'solution, or Government is required to address the mistakes which come from kindness are
the 'military vs political' solution. This problems of backwardness and mass the very worst. .. If one side uses force
is utter nonsense, but it is politically distress not because and where there is without compunction, undeterred by the
correct nonsense, and to be an advocate anti-state violence; it is required to bloodshed it involves, while the other
of the 'developmental' or 'political' address these problems across its entire side refrains, the first will gain the
solution, while excoriating the supposed jurisdiction because that, precisely, is upper hand." This is the principle that
irrationality of the military solution is a what it exists for. A corollary, here, is must be kept in mind while framing an
highly rewarding public posture. Thus, that by disproportionately allocating approach to counter-terrorism (we are
rising terrorism and violence across the resources and efforts for reform still far from framing a counter-
country is continuously accompanied by (however unsuccessfully) to the terrorism policy or strategy).
much talk on the need f()r development, .'development' of violence-driven areas,
There is, in the Indian discourse, an
political and land reforms, and the the state validates the idea that social
air of utter bafflement regarding the
social emancipation of long-neglected and economic transformation cannot be
question of use of force within the'
populations in areas of persistent or secured in the absence of such violence,
context of democracy, with the
escalating conflict. Development, we thus producing a demonstration effect
dominant thinking endorsing the idea
are repeatedly told, is the only solution that catalyses a further spread of violent
that all use of force is somehow a
to the menace of widening insurgencies ideologies.
violation of democratic principles, and
and terrorist movements; unless we
Consequently, unless conditions that the state must negotiate a solution
address the 'root causes' of poverty,
conducive to. the efficient delivery of to every emerging problem or conflict.
backwardness and deprivati~n in these
public goods, including education, Within this bafflement, the idea of the .---
areas, the extremist forces will ~nly go
health and minimal social security, and rule of law - which (and not the
from strength to strength.
to massive private investment and electoral process) is the essence of
There are several levels at which decentraliz;ed, widely disperSed, rural democracy - has been completely
these perspectives are. wrong, and as a enterprise can be created, various sacrificed. Regrettably, those who claim
result of which they will necessarily 'packages' for areas of conflict or of to speak for democracy seem to be
yield counter-productive policies. It is endemic poverty will have unfamiliar with the most fundamental
not possible to take up these arguments inconsequ~ntial impact. Public aspects of c;lemocratic theory, and
in detail here (I have written about these expenditure needs, now, to be directed particularly with the debates on the role
elsewhere), but it is useful to notice, forcefully to the creation of these of force in democratic governance.
basically, the fact that no unique set of conditions, of productive assets and Politically correct rhetoric has left us
'root causes' actually explains the capacities, ofa minimal modern indifferent to the plight of the victims
emergence of insurgent or terrorist infrastructure and facilities in India's of crirninaland terrorist violence', even
violence. The administrative system and villages, which can help them integrate while there is a constant harping on the

concerns and grievances of those who negotiated solution actively privileges extraordinary locus of instability, with
resort to crime and terrorism. In violence and terror at the cost of the each of India's neighbours skirting state
doing this, the dominant discourse, In interests of the law abiding citizen, and ,failure. India is, itself, deeply
effect, removes all constraints from of the nation. Thus, when we argue that susceptible to a complex dynamic of
those who resort to violent excess, 'these are our brothers and sisters' , and destabilization that has already
while it places extraordinary and 'these are our children', we ignore the extended areas of disorder and non-
irrational constraints on the agencies fact that those whom they kill are also governance to large parts of the country,
of the state that are intended to 'our brothers and sisters' and 'our with nothing resembling an adequate set
protect the rule of law. children'; and tliat it is the prior, of responses in e'vidence. The use of
The nature of terrorism demands inescapable and constitutional duty of force in the defence of freedom, and of
quick, indeed, immediate and decisive the state to protect. the latter, and to its laws and Institutions, is not just a
application of appropriate -force; it impose the laws of the land, before moral necessity, it is a survival
requires the creation of institutional unrealistic considerations of a universal imperative. It is a demand that must be
structures and protocols of response, pacifism destroy the possibility of such. fulfilled, moreover, not with jingoism
not only for counter-terrorist action, but protection. Counter-terrorist policy and and hyper-nationalism, or' with
for relief and containment of the impact response are an awful responsibility of emerging patterns of communal
of terrorist acts; above and before all, the state, and must anchor themselves polarization and coercion', but rather
however, it demands a measure of in a practical wisdom, "without with a strong and sustained reliance on
clarity and an understanding of the conceding too much either to pity or to rationality, on' a detailed understanding
nature and necessity of use of force, a indulgence." of the challenge of terrorism and
realization that the use of capricious, Through history, nations have had to disorder, ap.d of the imperatives of a
weak and ineffective force compounds maintain and often refresh their democratic, lawful and effective
and escalates violence, and that independence through the force of arms. response to the threats to the nation's
continuous emphasis on political and The South Asian region has become an freedom and survival. 0
, Naxal Activity on the Decline, Says Union Home Secretary

Centre to help States Strengthen their Police Forces
'~II1~e 1\f.~x~l.~,am~ct~d"Sfate~ ~!a:!e~~er~,h~faid,~e,'GovetJlment's training to the .

"]IJS~O.~ld'~~~rth~"PPtimu!U ~~p~o~~h'•••
,'vy.lls,t??!~ngthe Left wing
;" ...•.•.
utIIi~ation of,. fu~ds unde: extremists back into the social
He reiterated that the
'yariou;~.~e?tr;at~c~eIlle!, fat; mainstream. However, firinaction
Govertlm~~~iwa~r~e~rtoholdtalkS
~~~~~1al ~~ ..i~pr9ye~~~t ..o; betalcenjfth~y attacked ... pglice.
if they ..gavenp
with th.e?~falities ....
" .•....
,~~!iti~~~nrllral ar~~ s;r~~. nelnr innoce.nt people.
artl1,s'lie1l2ged~eaffected ..State!>
¥?i~?'lf9!U~,~~qretaryVK"D'\lgg~1
sai,d. ' ' . Quggalsaid, the menace was to~do~tas~rren~er poliqy for
"."'- ,- c,,:-, '.,.,,:,
naxalities on the1ines of the one in
n;o ql'lted'toBihar, Jharkhand,
EX~!7~s~ri~sa~i~facfioll overt~e: AndhratBnidesh!
'qr}s~~,'~h~att~sgarb,. Andhra
~'.,'}n?~~al.,a~tiYIty;~rf?ll&&~l
~2ad~~h1,e!s~~rJJ ••tAaharas~traand OntaIks;\Vitll,;:u~i!edJ.,ib~r~ti?u
~U~,~?T<1~y~lg~~~lltwgU;ldg?
~e~t;~etI¥aL~hiteatot!l1 oi51 0 Front ofAs9Ill,~~~~g~l saidth~t
. '~~r.i~~~ntai~i?~th~
~0!ic7s~~iqn~;aqed n3:f'a1J?r?blems the ..Goyern~~nt?-"as;cea~y~ort~lks
:,~~eft~te'~ "wi~nes~i?g
i~.~pP~.:~h~??mberhaddecteased to Provided theygave.iuV$!iting that
~~llttll!hewa~.e~f ?:72tbis year. < they ",auld shll.hiWe patllof
!~~!i?n;~holl~dh~v~~e!t~r
"""rrept and rehabilitation violence.
......
~~~~~~,4~n~ip.t~e demand~by
P9lici~~, $tateChief Secretaries; police
ditf7re~tsfa!e~; tylrJ)uggal ...•.assured
~~q~F~!'i?~p~ess~er~o?satt?:. ~7tl}9fa~<lit~gn~lc:en;traI support to, chiefs and senior officers from the
Brt,d, ?~,~;tr;(}}~~~iSog2~i llatio ? ~elJ?~tre?g!h71l~;i~ ~Iice'for'7by; na:1aI-~ff~Cted$tat~s attended the
tI~$ol'!*e;;~3;tlaxal:affecte~ im.•.proving the intelligen;ce s~t,..upan...<1 tvy.o,..dayIlle~L
,- ", " -'. - '''',', ;,":' __ - -- "', .'0 ;:;":.-~
0

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•
Panacea could lie In
Panchayats
L C Jain
"i AXALISM
'{!,.,!"" HAS extended where there is better governance in
l
terms of law and order, there is better
'.!.'. "
l.,.'..•..
.•',....::'.,•'••..
~ ; ,'0'
....~; •.. 1.[.•.'•.......•.
!.! .. ; '•.•.,.,.., ~:m. ~.::;
•..•. ,~.,.,.•••..•
' , _ " :. _:~': '_'. C'-'.' __

~~~.ct:~l~
'.!.!•...••.••..
paramilitary forces are \

, \~O
panchayat raj.
Diffictdties, failures and setbacks

>. ,i!!.!!! being 'deployed. It was
notwithst<:tnding, it was encouraging to
therefore music to hear panchayat raj
hear thepanchayat raj revolution being
minister Mani Shankar Aiyar flag a
portrayed as a "long term process".
lllessage he had picked up at the thr~e-
Nearly 2.5 lakh elected Panchayati Raj
day conference on paIlchayats at Vigyan
Institutions (PRIs), which, along with
Bhavan (June, 2006) that there is a non-
the urban local bodies, constitute an
police way of halting the spread of
army of some 32 lakh elected
Naxalism. Aiyar said that he had heard
representatives, with proportional
that in tribal areas, where the Panchayat
representation for Scheduled Castes and
Extension to Scheduled Area Act
Scheduled Tribes (and Other Backward
(PESA) is effective, and where there is
\
Classes in many states). Most
respect for traditional institutions,
dramatically, PRIs and urban local
customs and usages as stipulated in
bodies have thrown up 12 lakh women
PESA, there is an absence of Naxalism.
representatives. And, one half of the
Hence implementation of PESA and the
. total of 32 lakh representatives are
holding of meetings of the Tribal
Panchayats Advisory Council as stipulated in the
youth below 35 years of age.
are not a Fifth Schedule of the Constitution, he

added, is ."critical to ending the ~a:xalite
Attention was drawn to the three-
point democratic deficit in our system,
panacea - but menace that threatens our unity, stability namely, representativeness limited to its
and democracy."
-they can ply arithmetical sense; the deficit in the
mandate for panchayat raj despite going
The' participants underscored that
our boat to a gram sabha activism and .social audit as far as we could in stretching the
are the only way of securing better' and Constitution; and the deficit in an
wholesome cleaner government at the grassroots. It intelligent political relationship being
life has been brought out that in states established between the different tiers of
The author is a noted economist, former Member, Planning Commission, and has worked extensively on Panchayati Raj issues.
. 21
our hierachical system of governance, The conference endorsed the Big that policy makers need hard facts for
res~lting in panchayats being perverted Bang approach to devolution in Karen, a sound, scientific, scholarly approach
into instruments of patronage rather which has rendered such remarkable towal:ds policy-making for panchayat
than participation. results compared to the incremental raj.
model preferred by far too many of the
The answer lies in two other other states. Aiyar concluded on a haunting note:
thoughts placed before the conference, It is a horror that while in terms of
both based on the perceptions of the Also that funds must be made millionaires India ranks eighth in the
Mahatma: ,one, that Gandhi's demand available to PRIs in such quantum as to world, in terms of the Human
was for Village Republics, not Village reach a critical mass. Development Index it ranks at 127.
Kingdom. PRIs must function The funds should flow united; That is the heart of the development
democratically and transparently and be devolution with strings attached will be dilemma with which the country is
accountable to lively gram sabhas. The a debased form of devolutjon. While faced.
other thought brought to attention was panchayat raj is revolutionising social
Gandhi's concept of governance as relationships in the countryside in. the Panchayats are not a panacea-but
oceanic circles spreading outwards as in three vital areas of promoting they can ply our boat to a wholesome
the ocea~ without anyone circle life. 0
development, strengthening democracy
imposing itself on any other. and ending discrimination, it is also true (Courtesy: 'The Asia.n Age')
NEXT STOP: MOON

ISRO working on launch of unmanned mission to orbit moon in 2008,
followed by manned mission by 2020
22
¥' ,,' '"
NlUALtSM ;' .'~,,',' /"j"

:;to ~ ~ '>f > l' ~ ~~ ~
.""~ {.. /~IEW'POINT
Naxalite Movement
in India
Prakash Singh
HE NAXALITE movement occupied the land of the kulaks and

derives its name from a ploughed them to establish their
small village Naxalbari on ownership. Demonstrations were
the tri-junction of India, organized against persons holding
Nepal.and what was then paddy in their godowns. In many cases,
East Pakistan, where tribals took up the entire stocks were lifted and
arms against the oppression of the distributed or sold locally at cheaper
" landlords in 1967. The movement rates. There were violent clashes.
spread like wildfire to different parts of Between March and May 1967, nearly
the country. Some of the finest brains a hundred incidents were reported to the .
and the cream of India's youth in certain police. The situatior. progressively
areas l~ft their homes and colleges to deteriorated. After some dithering, the
chase the dream of a new weld, a new West Bengal government ordered the
social order. Two decades had passed police to take action. The movement
since th~ dawn of independence and yet was squashed, but "Naxalbari exploded
large segments of the Indian population many a myth".
Government has _ peasants, workers and tribals - The extremists, following Mao's
prepared a cor.tinued to suffer the worst forms of dictum that "if there is to be revolution,
exploitation. The peaceful political theJ:e must be a revolutionary party",
comprehensive process; it was felt, would not be able formed, on April 22, 1969, the
to brin"g about the necessary change Communist Party of India (Marxist-
14-Point Plan to because vested interests controlled the Leninist). It was declared that "the first
deal with the levers ()f power, regulated the wheels of and foremost task of our Party is to
industry' and had a feudal stranglehold rouse the peasant masses in the
problem. How far over the predominantly agrarian countryside to wage guerilla war, unfold
these measures economy. An armed struggle was the agrarian revolution, build rural base,
only way out, they thought. use the countryside to encircle the cities
produce results, The ~atithal tribals of N axalbari, and finally to capture the cities and to
liberate the whole country":
remains to be seen armed with bows and arrows, forcibly
The author is former DG, BSF. He was also DGP, Uttar Pradesh and DGP, Assam. He is Padma Shri awardee on national security.
23
,
500
400
300
200
100
o
2002 2003 2005 (31.10.2005)
2005
•••.•No. of IncIdents •.•.• Police personnel killed __ Civilians killed, -;{- Nal<aliles killed -+-Incidents '~Police-personnel killed """*-Civillans killed '''*Naxalites killed
Head 2002 2003 2004 2005 Head

No. of Incidents 2005 (31.10.2005) 2006 (31.10.2006)
346 57? 310 532 No. of incidents 449
Police Personnel killed 12 163
12 06 22 Policel;'ersonnel killed 16
Civilians killed 84 10
127 68 184 Civilians killed
Naxalltes killed 163 33
87 163 47 160 Naxalites killed 123 108
-MHA
The Chinese Communist Party Debra-Gopiballavpur in West Bengal, outer cordon and the CRPF the inner
welcomed the formation of the Mushahari in Bihar and Palia in ring. The local police, which was
, CPI(ML). The MarxistcLeninist groups Lakhimpur district of UP. . '
generally accompanied by a magistrate,
of other countries like UK, Albania and
carried out thorough search of the area.
Sri Lanka also extended their recognition. The Naxalite violence was at a peak
Suspected naxalites were arrested, illicit
from about the middle of 1970 to the
The Rise weapons, ammunition and explosives
middle of, 1971. It is estimated that
seized. Wherever possible,
The Naxalite movement, 'drawing there were 4 total of about 4,000
simultaneous action was taken in the
inspiration from the Maoist ideology, incidents in the country from the middle
neighbouring area also so that the
had a meteoric phase for about two' of 1970 to the middle of 1971. The bulk
naxalites sneaking out were caught
years from the formation of the party till of these were from West Bengal (3,500)
while attempting to escape. These
followed by Bihar (220) and Andhra
the end of June 197 I. The ripples operations covered Midnapur, Purulia,
Pradesh (70).
starting from Naxalbmi spread in ever- Burdwan and Birbhum districts of West
widening circles to practically all parts Bengal; Singhbhum, Dhanbad and
The political parties realized the
of the country. The only areas which Santhal Parganas of Bihar, and
emergence of a new force. The
remained untouched were the north- Mayurbhanj of Orissa.
government became conscious of a new
eastern states and the Union Territories
threat not only to law and order but to The operation achieved the desired
of Goa, Pondicherry and Andaman &
the very existence of the democratic results, though not to the extent
Nicobar Islands. The dominant strand structure of the country. anticipated by the adrnipis~ration. The
of the movement was the annihilation of
organizational apparatus of the naxalites
cla,ss enemies. It was viewed as a The Decline
in the aforesajd districts was thrown out
"higher form of class struggle and the The Government of India organized of gear and the party activists fled from
beginning of guerilla war". Cham's joint operations by the army and the their known hideouts to other places in
assessment was <that "every corner of .police in the bordering districts of West search of safety. Violence registered a
India is like a volcano" about to erupt, Bengal, Bihar and Orissa which were drop. Incidents of arms-snatching fell
that "there is' the possibility of a particularly affected by N axalite down. Above all, it restored the
tremendous upsurge in India", and he depredations. The ()perations were confidence of the people in the strength
therefore called upon the cadres to start undertaken from July 1to August 15, of the administration. Charu Mazumdar
as many' points of armed struggle as 1971 and were code-named Operation was also arrested by the Calcutta Police
possible. "Expand anywhere and Steeplechase. The broad strategy of the detectives on July 16, 1972. A few days
everywhere" was his message. Such Security Forces was to surround as large later, he died. Charu's death marked the
expansions were particularly noticeable an area as possible and seal the routes end of a phase in the Naxalite
in Srikakulam in Andhra Pradesh, of entry and exit. The Army formed the movement. The period following his
24

-
-- --- --- .•..
~ .'
'.
'-4
2005(31.10.2005) 2008(31.10.200~)
2002 2003 2004 2005
I..•..lncldents••• PollcepersOnneildlecl-"CIv";;'~~"':'~~~ F
2003 2004 2005 Head 2005 (31.10.2005) '2006 (31.102006)~

Head 2002
....49 35 42 No. of Incidents 38 38
No. of incidents 68
04 01 Police Personnel killed 01 04
F»olieePersonnel killed 07 12
04 13 CiVIlians killed 13 04
Cfvlllans killed '. 04 03
00 03 Naxel"" killed 03 12.
NanlHes kilkid . 01 01
-MBA
Garakala daras (Lord of the Bushes) is bordering districts of Karnataka and

death witnessed divisions and
how the N axalites came to be known in certain pockets of Tamil Nadu.
fragmentations in the movement.
the interior areas. Kidnappings to secure The Andhra Pradesh government
DR21iJ the release of its own cadres was banned the PWG and its six front
The formation of People's War frequently resorted to by the PWG organizations in 1992. At the same time,
Group in Andhra Pradesh subsequently activists. The cause celebre was the the state police, assisted by the central
in 1980 under the leadership of kidnapping of six lAS officers including paramilitary forces, undertook well-
Kondapalli Seetharamaiah gave a new a Principal Secretary of the state organized counterinsurgency
lease of life to the movement. The government and Collector of East operations. As a result, 248 Naxalites
PWG's program included: God~vari district on December 27, were liquidated and 3,434 activists were
1987, while they were returning from a apprehended in 1992. The arrest of
• re:distribution of land
tribal welfare meeting at Pulimatu in the Kondapally Seetharamaiah and other
• enforcing payment of minimum
district. The state government decided important leaders meant further setback
wages to the farm labour to play safe and released the eight to the PWG. There was demoralization
• imposing taxes and penalties Naxalites in Rajahmundry jail. The among the ranks and about 8,500
• holding people's courts PWG got tremendous propaganda N axals surrendered before the
• destroying government property mileage out of the incident. authorities.
• kidnapping government In Bihar, the Maoist Communist
The revolutionary writers of the
functionaries Centre, another major naxalite
lana Natya M.andali, the cultural front
• attacking policemen formation, perpetrated acts of violence.
of the PWG, greatly helped in preparing
• enforcing a social code the environment in which the Naxalite Its organizational network extended to
ideology found ready acceptance. Its most of the Central Bihar districts.
The PWG is believed to have
moving spirit was Gummadi Vittal Rao, During the six year period from 1987
redistributed nearly half a million acres
better known as Gaddar. He was a to 1992, there were eight major
of land across Andhra Pradesh. Its
incidents in Gaya, Chatra and
activists also insisted on a hike in the balladeer who fought the establishment
Aurangabad districts in which 42
daily minimum wages and the annual . with the power of his songs. The
People's War Group gradually spread Rajputs, 40 bhumihars, 5 Muslims, 1
fee for jeetagadu (year-long'labour),
BJP MP and 3 policemen among others
The poorer sections found that what the its organizational network to the coastal
were killed. What began <).S a fight for
politicians had been talking about and and Rayalaseema districts in the state.
It extended its tentacles to the adjoining social and economic justice actually
the government promising year after
areas of Mahatashtra, Madhya Pradesh degenerated into a caste conflict with a
year could be translated into a reality
and Orissa and made a dent even in the veneer of class struggle. The MCC ran
only with the intervention of Naxalites.
25
virtually a parallel judicial system in ~ Increase in potential for violence are indications that the PWG "cadres
certain pockets. These were described
~ Unification of PW and MCCI received training in the handling of
as Jan Adalat or People's Court where
~ Plan to have a Red Corridor weapons and lEDs from some ex-LTTE
they would even shorten an accused by
cadres. They have also some
six inches - behead him, in other words! ~ Nexus with NE insurgents and
understanding with the National
Nepalese Maoists
[Pre~ent Pos~ Socialist Council of Nagaland(I-M) for
The Government of India have supporting each others' cause. Some
The present phase - we could also
already expressed concern over the batches of CPML-Party Unity also
call it the third phase - of the movement
spread of the Naxalite movement over appear to have received arms training
commenced with the holding of the
a huge geographical area. The Prime under the guidance of United Liberation
Ninth Congress of the People's War
Minister has described N axalite Front of Assam. The Communist Party
Group in 2001, when it was decided to
movement as the single biggest threat to of India (Maoist) has also worked out
militarise the armed component of the"
the internal security of the country. "a strategic alliance with the Communist
party by giving more sophisticated
According to the Institute for ,Conflict Party of Nepal (Maoist).
weapons to the People's Guerilla Army.
Management, the movement has
The total number of incidents of
actually spread over 165 <;Iistrictsin 14 @!iuation in ,States I
violence and resultant deaths in the
states and that the Home Ministry's Andhra Pradesh
country during the last five years have
assessment in this regard is an
been as follows: Andhra Pradesh "has gradually
understatement. The Naxals' potential
emerged as the epicenter of left-wing
Total Incidents Deaths for violence has increased substantially
extremism in the country. The PWG set
2001 1,208 564 with their acquisition of sophisticated
up a People's Guerilla Army in
2002 1,465 482 weapons and expertise in the use 9f
December 2000 "to strengthen the
2003 1,597 515 improvised explosive devices (lEDs).
political power of the people and to
2004 1,533 566 They are said to be in possession of at
defeat the efforts of the State and the
2005 1,594 669 least 6,500 regular weapons including
Central Governments to check the
AK 47 rifles and SLRs.
Violence was thus at a peak in 2005 (revolutionary) movement".
when 1,594 incidents took place in The movement got a tremendous
boost when its two major The most audacious attack by the
which 669 persons were killed, though
components, the People's War (PW) PWG took place on October 1, 2003,
2003 had registe!ed a slightly higher
number of incidents. and the Maoist Communist Centre of when they tIied to assassinate the Chief
India (MCCI), decided to merge on Minister of Andhra Pradesh,
The Ministry of Home Affairs, N Chandrababu N aidu, on a forest road
March 21, 2004, though a formal
Government of India, admits the spread between Tirupati and Tirumala in
announcement was made on October
of naxalite movement to 76 districts in Chittoor district while he was
14, 2004 only. The unified party was
9 states of the Union, namely, Andhra proceeding to attend the Brahmotsavam
called the Communist Party of India
Pradesh, Bihar, Madhya Pradesh, celebrations. Cfaymore mines hit the car
(Maoist). The merger, ~part from
Maharashtra, Orissa, Chhattisgarh, of the chief minister; the bulletproof
augmenting the support base of the
Jharkhand, Uttar Pradesh an"d West
movement, has given it the character armour over the car however saved him.
Bengal. It further concedes that the Four others including the State's
of a pan-Indian revolutionary group.
People's War and the MCCI are trying
The Naxals' plan to have a Compact Information Technology minister,
to increase their influence imd B Gopalakrishna Reddy, sustained
Revolutionary Zone stretching from
operations in some parts of the states of serious injuries. The PW claimed
Indo-Nepal border to the
Tamil Nadu, Kamataka and Kerala and
Dandakaranya Region is likely to get responsibility for the attack, saying that
also in some new areas of the states it was "to eliminate a person who has
a fillip with the unification of their
already affected.
ranks. been perpetuating state sponsored
The disturbing features of the violence".
The Naxalite groups' nexus with the
movement are:
other extremist organizations has added Peace talks were held between the
~ Spread over a large geographical area to the complexity of the problem. There
People's War Group and the state
26
government of Andhra Pradesh during Pradesh Transport Minister, Lakhiram Orissa Border Special Zonal Committee
June-July 2002 at the initiative of Kavre, was annihilated on December gave 'fillip to Left Wing Extremism in
'Committee of Concerned Citizens'. 15, 1999 in retaliation to the killing of the State.
Three rounds of talks. were held but four top PWG leaders ,Uttar Pradesh has witnessed stirrings
unfortunately there was no agreement
In Chhattisgarh, Naxalite violence is . of Naxalite activities in the eastern belt
on the substantive issues. The PWG
concentrated mainly in the Bastar area in Sonbhadra, Gorakhpur, Ghaziapur,
called off the talks in July 2002 in BaHia, Chandauli and Mirzapur
and in Rajnandgaon, Jashpur and
protest against the allegedly killing of districts. On November 20, 2004
Sarguja districts. The state government
their cadres in 'fake encounters'. A Naxalites blew up a police jeep in the
has been trying to mobilize the tribals
second round of peace talks were held forests of Chandauli with a landmine,
through 'Salwa Judum' (peace mission) ..
from October 15 to 18, 2004 at killing 13 PAC and 4 police personnel.
This is being vehemently opposed by
Hyderabad, but there were no fruitful
the Naxalites, and they have been In Maharashtra, Gadchiroli is
discussions. The government took
recklessly killing the Judum activists. particularly affected, though there are
strong exception to the N axals moving
The latest carnage took place on July incidents in Bhandara, Chandrapur,
about with arms in towns and cities. The
16, 2006 when Maoists slaughtered 27 Gondia and Nanded districts also.
Naxahtes' annihilation of Narsi Reddy,
tribals in a relief camp in Dantewada
Congress MLA, and eight others in a In Karnataka, Naxalites have been
district.
major attack on August 15, 2005 in active in the Kudremukh area following
Mehboobnagar proved to be the governnient's move to evict the tribals
proverbial last straw. The peace process from the forests. On February 11,2005,
Naxalite violence in West Bengal is Naxalites killed 6 policemen of the
ended abruptly, and government
at a low pitch compared to the other Karnataka State Reserve Police in
reimposed the ban on the Communist
states. This is to be attributed to the Tumkur district.
. Party of India (Maoist) and its front
success of Operation Barga under
organizations. The factors which gave rise to
which sharecroppers were registered.
"mm]The Naxalite movement in Bihar is

and given permanent and inheritable
rights on cultivation of their plots
Naxalism in the country are,
unfortunately, very much present today
also. The extent of poverty in the
covering a total area of 11 lac acres.
bogged down in caste based country continues to be abysmal. Land
Besides, 1.37 lac acres of ceiling
jealousies aD:d rivalries. On January reforms remain a neglected area.
5, 20105, the N axali te killed the surplus and benami lands were acquired
Unemployment figures are high. Tribals
by the state government and distributed
Superintendent of Police, Munger by have been getting a raw deal.
among 25 lac landless and marginal
blowing up his jeep. Six other Governance, particularly in .remote
policemen were also killed. Lately, cultivators. The land reforms have seen
areas, is poor.
the emergence of a new class loosely
the Maoist Communist Centre has
termed 'rural rich' and weakened the Government have prepared a
shifted its focus to the Jharkhand
social and political power enjoyed by comprehensive 14-Point Plan to deal
region, which was carved out-of
the landlords in the countryside. There with the problem. There' is special
Bihar on November 15, 2000. The
is some Naxalite activity nevertheless in emphasis on the socio-economic
Naxallites are said to be active in 15
Midnapur, Bankura and Purulia development of the affected areas, and
out of the 22 districts of Jharkhand.
They have been particularly targeting districts. the state governments have been asked
to ensure speedy implementation of
the police .and the paramilitary
land reforms. Infrastructure is being
personnel.
Orissa witnessed a qualitative developed and there ar'e.pt'ans to
.DJtdememh1ttitgarJ!j increase in Naxalite violence duriI).g provide employment to the youth in the
In Madhya Pradesh, following the 2000 and 2001. The MCC has remote, backward areas. The National
bifurcation of the state in November established its presence in the northern Tribal Policy seeks to protect the rights
2000, Naxalite violence is now districts while the PWG has of tribals. How far these measures
confined to Balaghat, Mandla, Dindori, consolidated its hold over the southern produce the intended results, however,
and Sidhi districts only. The Madhya districts. The formation of Andhra- remains to be seen. 0
27
28
YOJANA .February 2007
l
Greyhounds The Answer to

Extremist Violence
M S Shanker
NDHRA PRADESH, which erstwhile government in the state has

was bogged down with the thought of containing the left-wing
left-wing extremist groups' extremists violence, which was
of CPI-ML violence, had spreading like wild fire. The Civil
established a separate high- Police, who were being trained only to
profile and well 'trained unit within contain and enforce law and order were
Andhra Police to take on the left wing unable to face the challenges been
extremists. thrown at by the well-trained CPI-ML
splinter groups: Of them, the then
Established way back in 1989, the
People's War Group, was recognized as
br~inchild of a tough super cop, K S
. most militant as it could acquire most
Vyas, the Greyhounds, had shown to the
sophisticated weapons like AK-47
entire country that the powers that be,
assault rifles and acquired blasting of
if it has commitment to contain
landmine technology using remote
senseless violence perpetrated by these .
control operations.
CPI-ML groups, it can as well succeed
in its efforts. As a result, the state suffered
maximum casualties amongst the police
~']reyhounds have Successive governments in the state
personnel as well civilians. Although,
were dilly-dallying with the spread of
b4~comepopular not left-wing extremist violence who have
the state police could raise the AP
Speci::tl Police battalions to combat the
only in many spearheaded their ideological warfare
naxal menace, yet they could not match
well equipped with arms and
the left-wing extremists.
naxal-infested ammunition. While an "X" party
perceived it as a socio-economical This forced the then government to
states but also problem, the "Y" as law-and order. But, recruit and train much more elite police
some. neighbouring the fact that it was the combination of force. And.it was rightly named as .
"Greyhounds" .
law-and order as well the socio-
countries like economic.
This elite group, which was started
Nepal No sooner this was realized, the with a small number of 100-odd
The. author is Chief PRO with Andhra Pradesh Police.

Generated by PDFKit.NET Evaluation \
members, has now grown manifold. The

---
Intelligence Bureau (SIB) of the state Greyhounds and chalked out schemes to
state police are keeping the exact police's anti-naxal wing is giving the tip improvement communication network
manpower figures of this unit as top offs. to reach out to remotest comers of the
secret.
state, especially in the deep jungles.
Ironically, the police had to face
There is a special drive to recruit difficulties in combating the armed As a result, the elite police outfit,
youngsters for this elite group. It is naxals, as the state have territorial
'Greyhounds operations' started
gathered that the basic requirements to - borders with Maharashtra, Madhya
yielding results as Andhra Pradesh
join this group are also different. Apart Pradesh, Chhattisgarh and Orissa in the during its last two years intensified its
from physical fitness, the other factor north-East and Tamil Nadu and operations to flush out the left-wing
that is being considered was strong Karnataka on the southern side. extremists from their hideouts. This was
mental ability to accept challenges and
after the state government putting
execute them. Their training is-as tough The left-wing extremists do have
sincere efforts for a dialogue with the
as the Army, if not more. Like in Indian their -presence in Madhya Pradesh,
left-wing extremists groups for
Army, this the author is Chief PRO with Maharasthra; Chhattisgarh, and Orissa,
amicable settlement to ensure: long-
- Andhra Pradesh Police. Elite unit besides making penetration in some
lasting peace and tranquility in the state.
members are also being trained to parts 'of the other two southern states.
But, the talks failed and Greyhounds
handle modern weapons, understand In the past, the extremist groups had
swung into action.
and imbibe latest technologies in used the 'strike~and-run' tactics by
weaponry, map reading, perfect effectively using their manpower to The Centre too has finally
communications skills, overcome their set targets. The naxals also recognized Andhra Pradesh initiatives
difficulties in tough terrains (like rope effectively used their favourite slogan in successfully containing the left-wing
wa.lldng, mountaineering, skiing, horse "land to tiller" and impressed upon the extremist violence, which rocked the
riding etc.,). Apart from this they are tfibals living in remotest and state little over two and half decades,-
being trained in guerilla warfare besides inaccessible- areas. After successful and directed other naxals (or Maoists)
handling suicide squads. operation, the naxals managed to take infested states to follow Andhra model.
shelter at these tribal hamlets, as they This is no mean achievement.
The elite group is being pressed into
are not accessihle.
service only after attaining specific The Greyhounds, on the other hand
information about the possible left-wing Fearing possible mining of the area - have become popular not only in many
extremists groups movements in and the ill-trained cops re$tricted only naxal-infested states within the country,
difficult terrains of either Nallamala to the urban areas. However, they but also to some neighbouring countries
forests or deep jungles of realized that development and like Nepal. They choose to send their
-Dandakaranya, which cover most of the containing left-wing extremist violence policemen -to get trained by the
state geographical peripheries on the must go hand-in-hand. It thought of a Greyhounds unit situated on the city
East and Northern borders. The Special well-trained police units like outskirts on a sprawling campus. 0
- - .
Humane Policy for Displaced I?armers : PM
h9P6d:
T
he- Prime Minister (~C~i):iie -said issuesi~richasl~nd .•••..
~ifitid~~cpa~~~f~~~h~~cpe.c ..
acquisition and displacem~nt of people therctwo countries. become. so'
-~:~a:~:i:a~::~::::~~ and their rehabilitation andresettlement :~i~n~l~ that apatposPJiere.of trust
displacedJarmers would be finalized sh~~ldlj~ transparently .and' t:ffecti \rely isg~~~r~~~?V?vyi!i 's vi~ion9f
in the next three months. add1:essed. reg~o~al integ~ati93hePrime
Itw6rirdbe "more progressive, Recfyiringto tax l'egirri~~he said that Mi~c~sct~~said ';~d~r~~of'a da~
humane and conducive tdthe long- our' tax. sys.tem should beIiberalbut whe~\\f~ile retai~ing.:gurrespe~ti ve
term welfare of all stakeholders in our equitab1e. Irithe longrun,itshouldnpt. naiionalidentities; (~he can have-
economy", Dr Singh was speaking at have toO many exemption~}batmake _ breakfast in AnirHshr, lunchi in
the inaugural function of the -annual Lah()rearid din.ner}n I~l;lbul".
tax.adm!nistration an. unnecessarily
meeting of Federation. of Indian complex exercise vulnerable to misuse, o
Chambers of Commerce and'Industry Dr Singh said.
30
NAXALISM . . .. .
, +
ANALYSIS
An Integrated Strategy
RK Bhonsle
HE REBIRTH 'Of N axalism in "ather" in which the Naxals aperate,and

India in the 1990's has withaut develaping the, "'Others" we
caincided with the sec and cannat call 'Ourselves citizens 'Of a
phase 'Of natian building 'Of develaped warld, an aspiratian 'Of every
'Ouryaung republic. Iranically. Indian. Naxalism thus needs ta be
it alsa 'Overlaps liberalisatian 'Of the understaad as a phenamenan afnatian
ecanamy undertaken by ecanamic building, as its failed dimensian,
visian 'Of the present Prime Minister, Dr needing urgent palliatives essentially at
Manmahan Singh, integrating the the grass ro?ts level.
cauntry with the glabal ecanamy and
Equality and equity is the visian 'Of
dismantling the licence permit raj 'Of
'OurCanstitutian, a pawerful dacument
yesteryear. While the creamy layer 'Of
which has inspired generatians. Yet it
the ecanamy easily adapted ta glabal
has failed ta bring abaut change in
realities and is grawing at a steady 8 per
millians 'Of Indians far lack 'Of
,cent aver the years, at the subterranean
adaptatian at the subterranean level.
level, at which the Naxal mavement
This inability to ttan~farm the
'Operates, is sadly the parallelecanamy
Constitutianal visian ta the deep nether
'Operated by the guerillas that is seen ta
world 'Of rural and tribal India was ripe
A virtuous be prospering. Thus the influence 'Of the
far thase with revalutianary ideas and
Naxals extends by a canservative
.economic cycle estimate ta aver 160 'Of the 602 districts
vi gaur as K Seetharamaiah
Peaple's War wha have successJully
'Of the
'Of the cauntry .

.lor employment 'Organised a mavement 'Of rebellian
The contrast between the farces 'Of ' against nan implementatian and nan
is a key facet of glabalisatian and Naxalism in India, delivery 'Of palicies 'Of the state.
the strategy explains the prasperity-paverty dyad ' Gradually .extendin~ their reach ta areas
that caexists. The reality is that bath which have been traditionally backward
which needs to these trends are significant far natianal and yet rich in extractive resaurces as
develapment. Far withaut integrating minerals and tendu, the mavement
be diligently with the glabal ecanamy, India cannat today encampasses over 25 percent of
fostered acquire the resaurces ta develap its, the cauntry's area spread aver its heart,
The author is an expert on security issues.

2004, 200&
379 308
41 27'
128 91 84 71
20 07 06 18
-MHA
the junction point between, Andhra well as hubris of bureaucratic live by the gun reaping a rich harvest
Pradesh, Orissa, Maharashtra, governance. of extortion arid "tax" collection with
Chhattisgarh, Jharkhimd and Bihar in revenues to the tune of Rs 100 crore
the North and pockets of other states,' • Lack of empathy of the political reported in Andhra Pradesh. Acquisition
Karnataka, Madhya Pradesh, Uttar class which in a modem system of of facilities' for manufacture of
Pradesh and West Bengal. An administration and legislative sophisticated arms and ammunition is a
analytical view oJ the affected areas functioning tends to gravitate away part of the overall process of expansion
would reveal common characteristics from the grassroots. demonstrated by the seizure of a large
of failure of governance and the consignment of rockets in Andhra
processes of nation building Unable to change the status quo Pradesh, allegedly manufactured in an
summarized as given below: democratically, revolutionaries seize the industrial complex in Chennai. The
initiative with a genuine desire for hierarchy of organisation' follows the
• Dependence of a majority of the transformation in the lives of the masses pattern of state committee, special zonal
people on agriculture at the at least in the beginning of the committees, area committees, dalams,
subsistence level, a primitive fOnTIof movement till an ambit,ion for self local squads and action teams. The
surviving nature's bounty, with no growth, personal grandeur, and spatial spread is denoted by its inter
'human intervention in the form of animosities, pelf and power results in state expanse with reports indicating
planned farming, soil replacement, loss of sight of the original aims of the that Naxals of Andhra Pradesh are
regeneration and market dictated struggle leading t.o adoption of means providing leadership for the movement
sowing patterns. which ate criminal and dehumanizing in other states grooming local
• Extractive mining, forestry and allied such as the killing of innocents in 'leaders. The total contour of
produce, which are highly Errabore, Chhattis~arh on 17 July 2006 N axalism today represents an
exploitative, remain the only other as a symbol of opposition to Salwa institutional form of terrorism with
economic activity. Judum. The anti social elements waiting guerrillas capable of isolated large scale
in the wings with divergent social and, military operations as witnessed in
• Modernisation in terms of education,
political aims and merchants of profit as Jehanabad and a series of networked
health care, and secondary
tendu contractors enter the fray to create acts of terroris~ across a broad swathe
employment in blue and white collar
conditions of anarchy in which they can of the nation'alhinterland;
)obs or services are :virtually non
prosper, by undermining the state.
existent.
Contours,
• Apathy of the, administration to the The administration dependent on
needs of the people on the plea of" extensive security 'is further alienated The characteristics of Naxalism
non intervention in tribal culture, from the masses, leaving the field open would thus indicate a structured
customs, and traditions and stasis as ' for the so called revolutionaries who ideological, political, social, economic

~... .
, and military profile summarized as • Tier 3. Balance 100 plus districts - the contrary it would entail search and
follows: Contain Naxal influence, enhance destroy missions s~eking out the
• The ideological underpinnings are effectiveness of state authority, guerrillas but avoiding fall out of the
complex varying from tribalism to confrontation on the masses.
communism. However development Counter Naxal Strategies
Multi Pronged Approach : In line
, and the growth divide is the key General : Given the constitutional with people centricity, a nuanced
paradigm and Naxalites are adept at diversity in law and order between the approach with different levels of police,
manipulating local grievances for state and the centre, it has not been development and economic activities in
nefarious ends. possible to follow a uniform strategy. Tier 1, Tier 2 and Tier 3 areas would
• Organisation is well structured and As'the overall strategy of the Naxals is have to be undertaken as explained
includes a political, military, well coordinated, the fallout of varied below:
economic as well as technical wing. policies by different stat,es is
invariably castigated. There are (a) Tier 1. This being under total
Strategic congruity and coordination
reasons to believe however that it control of the Naxalite, two approaches
between Naxals operating in various-
may be possible to follow divergent could be adopted. Negotiation with the
- states is evident.
strategies between states and even local Naxa1 leadership, which may not
• The level of militant actions work initially but if persisted could
within different districts in a state
represents networked terrorism achieve results and could be attempted.
depending on the level of militancy,
rather than an ability to carry out The other option is to neutralize the
the strength of the Naxalite and the
coordinated Paramilitary operations. Naxals, for which at present, operations
level of their operations. There IS no
, • Financial support is derived from doubt that this will create situations by the army appear to be the only
low level economic terrorism in the where Naxalite under pressure in one alternative.
fOlm of extortion, "taxes", levies and district may seek sanctuary in other (b) Tier 2. 'Operations in this area
looting of government treasuries and areas, but it has the benefit of will be perforce police predominant to
banks. External financial support of winning over local support by re-establish ,control and neutralize
vested interests has not been noticed establishing a positive differential. influ~nce of terrorists. Situational
so far.
Strategy: The primary strategy protection of a wide variety of targets
• Support of the lpcal population selected has to be people centric rather will be essent~al. Police will have to be
varies from genuine sympathy to than the normal trend of terrorist focus. supported by special commando
coercion. The variation is subtle and thus needs taskforces based on the Grey hound
• Naxalism affects society at all levels. delibefatlon. In people centric model of Andhra Pradesh.
strategies, all acti vities law and order, Concomitantly follow up development
Out of the 160 plus districts affected
development Of humanitarian are operations are essential.
by N axalism, ,it is generally
related to providing relief to the people,
acknowledged that 55 are worst (c) Tier 3. These operations need to-
be it immediate, short and long tern.
affected where the Naxalite are be development heavy, limiting police
Operations impinging on safety and
.reportedly running a parallel influence to creati,ng an atmosphere of
security of the public are avoided even
goVernment. On the other hand the safety and security for conduct of
if it implies a temporary reprieve to -the
A'bujmadh area in Chattisgarh is normal"economic activities. A broken
militants.-The example of Salwa Judum
'reportedly'devoid of any form of windows approach has to be followed
rgovernance and is unde; total Naxal could perhaps highlight this facet. The
in that even the smallest incident has to
displacement of almost 70,000 people
control. The area facing Naxal tyranny be investigated and the culprits nailed.
from their homes and livelihood has
could ?e divided int6 'following three
possibly occurred as the larger Grassroots Governance. Re-
cate~~oties:
-implications of such a movement and its establishing grassroots governance
• Tier 1. Abujmadh Area. - Under Naxalite backlash was not realised. implies ensuring that benefits of various
_total control of the N axals, need to Today it lias become an example of schemes in vogue such as the rural
establish state authority. living human tragedy, where poor tribal employment guarantee sche~e, Pradhan
•• Tier 2. 55 Worst affeCted districts ~ have been made refugees in their own Mantri Gram Sadak Yojna,the security
re-establish state authority, neutralize homeland. The people-centric strategies related expenditure grants reach the
parallel influence of Naxals. does not imply a pacifist approach to "Aam Admi" rather than remaining
YOJANA February 2007- 33

contain economic impainnent need to

be undertaken by law !is well as
economic enforcement wings; the latter
Governance
is particularly weak and needs to be
~Emplo~1l1~ritRelated ~l1~mk
. Acti vi,ty • activated at the state and district level.
Containing unemployment despite the
Unemployment '.Pb1iti9al~1;\d social S~~~~gy
large number, of employment guarantee
f Social Discontent Eolicing~d SOCi~p~lj)~~g .• schemes is a challenge. Equity in pay is
Violence VOf;tti~rfland G~ner~lEdu~ati9n: another issue, even the Special Police
~ Dehumanization and criin~ 'MasS blfonnation; Edu~ation, ".,. officers are paid Rs 1,500 a month
;Communic~tion, ';<h, ,''7
which is just above $ l' a day, the
RU1l1ours,disinfonnation Health ~Setvices • if
~~{':
/ established global poverty indicator.
Recruitment by Naxals ;;FiminciaLassistance !oJ
Restraining rumours, propaganda and
disinformation is a major challenge.
grandiose proclamations bla(ed from incorporating all elements, of the society The Maoists generally have well oiled
the ramparts of festooned daises. This has to be established. The role of the propaganda machinery which has no
will necessitate major organisational .grid will be two fold, containment of the institutional counters from the
changes in our delivery mechanisms root causes and symptoms of militancy administration. There is thus a need for.
and attitudes from the lowest patwaris, and expanding effectiveness of evolving a vibrant media and
naib tehsildars, tehsildars to the key to governance summari~ed as in Table. communication strategy,at the grass
all governance, the district magistrate. roots.
The key aspects of containment are
In parallel, people's representatives
restricting the geographical spread, by. , Expansion of governance is the key
n~ed to build public opinion to support
identifying likely areas where Naxalite to normalizing the situation.
the executive. For implementation the
are planning to spread their influence by Administration implies ensuring
following is suggested:
proactive police and economic delivery of the benefit of the large
(a) Tier 1. A fresh model of measures, Information about such areas number of schemes in the field of
governance with virtual control under is available in open sources. Control of employment guarantee, land reforms,
anny would bave to be adopted. violence and crinie are primary police education; health and business to the
tasks to be carried out through masses. The procedures for most of
(b) Tier 2. 55 selected district
deterrence as well as proactive policing these are so complicated that it creates
magistrates and superintendent of police
to seek hideouts and rush them, a vigour a series of middlemen, who in league
preferably volunteers should.be posted
shown by the Grey Hounds of Andhra with corrupt officials tum out to be the
to these districts for a minimum tenure
Pradesh Police recently. An attendant principal beneficiaries. Tangible results
of three years. No post in the district
issue is containmeht of dehumanization, in governance can only be achieved by
administration should 'be left vacant and
which permeates due to a culture of simplification of procedures to be user
special monetary as well as promotion
violence and self survival ignoring the friendly for a sub literate tribal. Political
incenti ves should be provided to
larger social good. This can only be and social synergy will act as a principal
officials, who will be functioning under
achieved by enlightened means of medium, where political parties and
extreme threat of danger to life.
jurisdiction adopted by the state.. social organisation undertake the role of
, (c) Tier 3. Volunteers for serving in Restricting the trend of inducting local, an inter link between the masses and the
these districts could be called for, youth in police and Para military forces administration in a positive way. The
alternately two year tenure should be purely for employment generation is an example of students organisations in
made mandatory before grant" of next aspect which needs consideration. urban areas, who at the time of
promotion at all levels and additional Containment of social. discontent is a registration of new entrants to colleges
bonus in terms of financial' and critical issue, measures for the same set up camps to guide and assist youth
monetary benefits could be granted. need to be carefully thought through in filling forms and facilitate fonnalities
suiting local conditions. fo~ entrance could be adopted for this
Implementation Strategy Tribal rights, distribution of land and purpose in rural areas, where CIvil
A coordinated grid comprising of greater social equity will go it long way society organisations can act as
security and administration in achieving this objective. Strategies to, ' facilitators 'in dissemination of
34 YOJANA Febru'ary 2007

governance in concert with

.the district administration.
Creating a virtuous
economic cycle for growth
of employment is a key
facet of the strategy of
expansion, which needs to
be diligently fostered
based on linkage of
vocational and skill based
education with jobs. A
reverse model of inducting
youth in jobs on stipend
and then training them in
relevant skills should be
adopted to engage people
in fruitful occupations. supporters to the area, contact 'with local integrating top down loop would
Education. and health services are the sleepers, disappearance of key facilitate information dissemination.
principal agents of change in a society. sleepers aild greater presence of Physical and human data points have
Schools and health centres should be aliens. In some cases it has been seen to be established and a core group
hubs of development and the, district that shopkeepers are aware of a likely f.ormed comprising of the political,
administration needs to ensure that incident and keep their administrative, police, economic,
these function effectively. All posts in establishments closed, but the police social and media head in each area to
remote areas need to be fully have not noticed the change, nor have synergise the process. Such a core
subscribed. A critical area is mass they been informed for fear of group should evolve periodic t~rgets,
education on issues of health, deriving reprisals. Penetration of the terrorist divide these into achievable goals
programI)1e benefits and gener.al organisations and human intelligence based on fixed time lines in terms of
awareness for which specific campaigns is of essence supplemented by weekly, fortnightly and monthly'
need to be launched. Financial technical intelligence. Social policing objectives and then mpnitor progress.
assistance in terms of small loans and is an important facet which is Naxalism is one of the many
creation of self help groups is a measure normally neglected. This entails
challenges of nation builqing facing
which has received international creation of synergy between the India. There is no doubt that through .
recognition with the Nobel Peace award citizen and the policemen through
enlightened policies and commitment of
to Grameen Bank in Bangladesh. This mutual respect and reducing necessity
the people, the executive and the
positive perception needs to be for communal policing thereby,
leadership, this challenge would be over
exploited to rid the tribal from the vice targeting poJice activity towards hard come in times to come. It is however
like grip of money lenders. core crime rather than marginal
essential to ensure that this is achieved
activities. This will also contribute to
.with minimum dissonance, human
Policing is a principal facet for
building intelligence .networks by
tragedies and loss of lives, so that the
res.toring normalcy. A number of
indicating existence of socially
measures to improve policing at the transformation of those at the mm;gins
deviant activities of individuals and of our economic success story is as
state level have been taken, but its
groups. painless as possible. Fortunately the
benefits once again are not being seen
at the grass roots level. The key to Information needs to be leveraged country today is endowed with
policing is a grid of functional police as a core strategy for monitoring sufficient resources; inability of delivery
stations and security hot spots such as implementation. A bottoms up of these to those who actually need it
Salwa Judum camps. An intelligence information loop which starts from has however. been poor. An integrated
network is another important issue. The the common man and moves upwards grid strategy suggested above is one
signs of a likely strike by Naxalite are to the panchayat, taluka, district and . way this could be achieved to enable
reasonably obvious and will include the state to provide feed back needs the benefits of governance reach the
increased activity of militants and their to be created. On the other hand an. grassroots in Naxal affected areas. 0

. Rural Progress Plan of Rs 1,58,310 crore
E
a first of its kind estimation of also said that 44 per cent households for better connectivity.
infrastruc. ture deficit in rural did not have access to surfaced roads.
reas, the National Council of There is also a suggestion to levy
The telecom boom too seems to have
Applied Economic Research user charges for water~something
touched the villages only at the
(NCAER) has estimated an which has often not found favour
fringes, with 92 per cent households
investment of Rs 1,58,310 crore in with the political classes~to reduce
having to do without a decent
telecommunications, power roads exchange line. wastage and also generate resources
and transport, water and sanitation. since government assistance is often
The prescription for. bridging the found insufficient. For those who •
Pointing to the fact that rural gap is promoting new technologies, found the charges heavy,
India faces more acute shortage of developing local initiatives and microfinance is recommended as an
infrastructure, the India Rural stimulating demand. In case of aid. "Local providers now face entry
Infrastructure Report made. a strong telecom, for instance, it suggested and pricing barriers in formal water
pitch for decentralising and that instead of landlines, wireless and markets, although many operate
localising the provision .of these cellular phones provided a more cost- informally. Registration would help
services in addition to seeking effective solution and microfinance to legitimise their operations," it
newer financing instruments. It said could help village-folk buy or hire said.
that even a stepped up allocation for instruments.
infrastructure, from 4.6 per cent of PM Lists Five Challenges
the gross domestic product at Similarly, it suggested • Revitalising rural economy
present to 7-8 per cent of GDP in decentralisation to help a multi
• Improved delivery of public
the 11th Plan, may not be sufficient operator (discom) regime. This way
services
to bridge the gap. administrative costs would come
down, Besides, it has recommended • Detter urban management
"The capital needed to build
revenue-sharing among generators, • Financial system for global
infrastructure is a small percentage
transmission companies and integration
of the total expenditure that would
distributors so that say, a distributor
be needed to be .incurred by states • Private investment in
is not held to ransom by a power
(for operation and maintenance). infrastructure
producer.
Nor do the the capital costs include Developing villages: The Rural
central funds that would be needed For roads, the report Infrastructure Report of the NCAER
to be spent on administrative recommended the establishment of has estimated an expenditure of
expenses and subsidies," it said. village-level associations, which Rs 1,58,313 crore to develop
The report pointed out that could build roads, based on villages. The requirement for
78 per cent of rural contributions from m~mbers and different sector are:
households did not have subsidies from the government and
also collect user charges to ensure • Rs 92,609 crore for telecom
access to toilets, while 5 per connectivity.
cent did not have a source of proper maintenance. The government
drinking water within a one funding should be based on the • Rs 55,243 crore for power supply.
kilometre radius. economic benefit that flows and • Rs 5,892 crore for roads and
priority should be given to projects transport.
Despite claims of widespread that provide more returns. The report
electrification, only 52 per cent suggested that microfinance can • Rs 4,488 crore for water and
rural households had power sanitation.
stimulate vehicular demand and
connections and those witp informal operators, providing (* At 2002-03 prices)
. connections had to do without services which may not be legal (Source: NCAER's, 'India Rural
electricity for 13-17 hours a day. It under present rules, could be roped in Infrastructure Report')
36
....
L
.•.
In.dia's Gordian Knot

.. . .~
VEN as the Indian state is to admIt for the government"\. .
desperately looking for a programmes ofsocio-econ
weapon that can cut it free upliftment of the poor have
from the Gordian knot of worked so far and created condition
Naxalism, conditions on the for the Marxist-Leninist-Maoist
'revolutionaries' to challenge the Indian
ground give the impression that socio-
state at a time when the country has not
economic situation in the thirteen
only unsh.ackled its 45 year old
affected states of the country as well as
command economy in 1991, but during
in those that have been put on red alert
the past decade and a half has been
will continue to provide the Maoists
attempting to connect to the global
with the foot soldiers for their
capital and l~bour market to find
revolution. Obviously, the knot is not
employment for its hi1110n-plus
only tightening its noose around India's
population. It is not easy to dismantle
neck, there appear to be no one who
the traditional dominance structures,
.could exercise the proverbial
which are alive and kicking even as the
Alexandrian slash. This was perhaps on
country is gearing up to celebrate the
the mind of Prime Minister Dr
golden jubilee of its independence in
Manmohan Singh, when he described
less than a year. It is even more difficult
Naxalism, along with terrorism, as the
to check the new emerging dominance
two biggest terrorist thre'lts'to the
structures of the global and local capital
country in his independence day speech,
from joining hands with the established
However, he also recognised the. ones in perpetuating the existing
Without economic socio-economic problems that surround exploitative structure,
its spread and prodded the affected
development, states to hasten implementation of the The institutional decline of the
programmes of socio-economic school structures across the states and
strong-arm tactics upliftment of the underclass in the gradual roll back of the state from
will not succeed affected regions. Obviously, his two-
pr'onged strategy of dealing with
elementary education, has not helped in
creating a quality skilled work force
against the Naxalism is to come down heavily on needed for the specialised requirements
the Maoist leadership at the van guard of the modem technological job market,
naxalites even of the movement and wean away the Indians' reputation in IT and
poor, whose frustrations with the state management notwithstanding. No
with th.e strongest and society, take them .on the wonder, peripheries being drawn to the
revolutionary path. centre of the globalising Indian
.possible anti- Whether or not this strategy will economy are witnessing conflicts, not
terror law work remains to be seen. For, it is easy all of.them engineered by the Naxalites,
The author is Director, Centre for Public Affairs.
37
pIe of dedication as well as the work has seen to have weaned away
e;+~.,anisational skill and understanding people from the reyolutionary path,
~ °/the micro socio-economic situation in aside from providing the state with
~'O.~" Ihe region by one person. The greater access to these areas. Obviously,
# ~# /subsequent consolidation of various the governm~nts, the parties, and the
. ~~ ~ ~ /" factions of the Maoist groups ~e not so leadership running the juggernaut of the
~ ~~ ' much based on peasant mobilization as Indian state have faltered, may failed,
I> ~~ ~ ~ :Sl' on their cadre-based, conspiratorial, and in their basic responsibility. If the
~
0
.!'." >5
~~ f ..,...~
~ i
'
violent guerilla tactics, Yet, there is an reports about the Naxals running some
.:;.'";~ ~v q;r element' of popular support for them
.~ ~ 'Co' ~ NGf of the essential state functions like
~ ' o;;;.~ ,~ CJ~.he' from the poor in the areas where they
~ ° 0"'>;.,1
.~ !'.,# ~ "c:: ~ ilcy have consolidated.
heald, education and justice are true,
then the fudian state has faltered in a big
,s-e,;~
'0, ~;;S;
~ ~ I
v ~~.$
'.
In SOCIO-econOffilC terms; thi'th
s IS e way. Though it would not be easy to
. ;;S; ~O~. ~~ ~~ ,ro.?;:,-';'t 'area which the Indian state needs to 'recover the lost ground, it is important
"'" ~. ~ lie .
.~ .4 . attend to. There are mstances from. the that it should be achieved .
.••:s~":r2Jf 1946 very outset that whenever the land and While development deficit in terms
:t$' If 1967 development question has been of basic necessities remllins enormous,
/I~ both attended, the support to Maoism has there is complete failure on the. land
.,~. , a.atIOn of also declined. Popular support to the redistribution front, which has been
{ship had Telangana movement started dwindling further aggravated by the agrarian crisis
the CPI after Mahatma Gandhi's disciple and reflected in the farmers' suicides in
0-- sparked by Sarvodaya (literally meaning upliftment
.'
Vidarbha: Andhra Pradesh and other
'~""'---:ail"1ffiffie(liate incident, in both cases the of all) leader Acharya Vinoba Bhave
states. Unfortunately, land reform does
organisational strength provided by the toured. Telangana extensively and
not figure in the agenda of the Indian
party became the main sustaining factor. realising the importance of ,land
state in the post -liberalisation era. The
Even the revival of the Maoist launched his famous bhoodan (donation Union as well as the state governments,
movement in Srikakulam (Andhra of land) movement from there. In fact, including the Left Front government in
Pradesh) in 1980 by Vempatapu Charu Mazumdar too realised this when West Bengal, are busy wooing FDI,
Satyriarayana followed intense the' CPM-led United Front government obviously in a bid to cash in on the
mobilization of the girijans. However, in West Bengal launched its land
'advantages' of globalisation. Indeed,_
the 1946 movement was different and redistribution policy in 1967 in the globalisation is as much a policy-
significant in One distinct way from the wake of the Naxalbari. Reacting to its
oriented and plimned process as it is
two. The rebellion organised by the CPI impact, he observed:
since 1944 was against a feudal- fortuitous one in the era of increased
international travel and the IT boom,
co Ioma . I or d er, m. w hi coca hI 1 was very ... wherever there1 have'th been
. muc h t h"' e lOCUS.Th oug h not orgamse . d movements on vested . and, e peasant but a government can push the agenda
, . . who gets the possessIOn of the vested of the forces of globalisation by being
agamst the IndIan state per se, ItS 1 d d th I' t 't d
substantIve.' battles were fought agamst . an an " e lcense 0 occupy 1.. oes oblivious of its own ground realities
th e m
. depen d ent Indi an state. Ind ee,d th e not rem. am actIvet any longer m the only on its own peril. If a large part of
'SOCIal
. order was unhkely . to change peasant movemen . the Indian populace is tied to land and
.overnight and the landlords were quick He further added: forests and dependent on it for
livelihood, this reality has to be part of
to make alliances with the new ruling ...within a year (of the possession of
the government's globalisation oriented
elite, but' the party carried forward the the land), the class character of the poor
policies too. This means that land and
movement in the hope of a great peasant changes and he becomes'a
agrarian policies need attention.
communist victory and looked forward middle peasant. He no longer shares the
Indeed, the anti-poverty programmes
to support from the Soviet Union, which economic demand .of the poor and
have found a boost with the National
was not to be. The Naxalbari movement landless peasant. Thus, economism drives
Rural Employment Guarantee Scheme,
too displayed its distinctiveness and a wedge in the unity of the fighting
but, for one, they do not attend to this
contradictions as it flourished and peasants and plunges the landless and
issue of land rights in rural India and, for
decayed on a second split in the poor peasants in despondency.
another, the NREGS too is not fairing any
communist movement in India. The No wonder, the Naxals today resist
better than earlier programmes in
,Srikakulam experience, which in a way . any move by the governments in the
reducing poverty. A recent study of the
is the spark that has carried the Maoist respective States to carry. out any
scheme in Jharkhand concludes:
revolution forward despite intense developmental work in the area under
'The picture emerging from this brief
factionalization and - splits, is an their control. For, even developmental
investigation is far fTOmencouraging. As
38
2004' 2005.
.84 95
22
,06 24
27
09 29
03
02 03
-MHA
issues of agrarian transformation, tribal strategy either of offence. or defence.

things stand, there is little difference
betwleenNREGA and earlier employment people's rights, nationality movement Obviously, policing needs, strategies
programmes such as NFFWP (National and resisting imperialism and and attitudes require redefinition in the
Food for Work Programme). and globalization adding up to an integrated context of the current Indian realities
SGRY(Sanjay Gandhi Rozgar Yojna). programme of what they characterize as and Naxalism, along with terrorism, is
And the basic purpose of employment on people's democratic revolution to one of the very serious, emerging
demand at the statutory minimum wage change the nature of the Indian state. challenges. The seriousness of the
. is nowhere near being achieved. Because of the issues that pursue they challenge of Naxalism is that though the
Further, the forest resources in the have a social base which sustains them movement has been using terror as an
country too have been commercialized despite a variety of repressive measures important tool, it cannot be equated
alienating the adivasis/girijans from pursued by the Indian state. with terrorism because of its socio-
forest produce. Industrialisation, mining economic dimension and considerable
The security. response too appears to
and the const:n:Iction of big dams have grassroots support to it.
have lacked vision, as strategically and
caused massive displacement of the trainingwise, the Naxals clearly have an Neither the Salwa Judum experiment
tribals without proper resettlement edge Over the security forces. Not only ih Chhattisgarh, which is reported to have
policies. The tribal and dalit have they demonstrated that their pitched the tribals against their own
development programmes over the intelligence network is superior to the brethren, nor raising a girijan Greyhound
years have created new elite structure in police, they have also exposed that the force, which too is having a similar effect,
the community, leaving patches of acute armed police (State or Central) neither appears to be an appropriate security
poverty and causing distress migration have the training, nor a strategic response to Naxalism. A movement like
from there. Moreover, corruption thinking to engage them effectively. Of Salwa Judum which also plans to arm the
networks involving politicians,. locally course, this is linked also to the larger community against the Naxal attacks by
dominant persons and families, debate on institutional decline of the designating some of them as Special .
contractors (the three could be Indian police at every level, particularly Police Officers, could also have the
overlapping too) and bureau,cracy. in at the cutting edge level that is critical negative impact of some of them settling
areas with forest resources are only for day to day intelligence, and lack of their scores. In any case, the brutal
pervasive, they are invasive in the lives a policy for policing violent attacks on the Salwa Judum camps in
of the tribals too. The recent political phenomenon such as the Naxalism. recent past gives the impression that the
crisis in Jharkhand, the State created by Iehanabad would not have happened tribals in Chhattisgarh are increasingly
bifurcating from Bihar the mineral rich otherwise.That tl).e Naxals i~ Andhra getting exposed to pressure from both
tribal inhabited' Chhotanagpur plateau Pradesh could mine the surroundings of the sides. Therefore, in order to involve
because the interests of the tribals were an police station before mounting an the community in policing such social
being ignored in Bihar, amongst other attack so t~at the police persons are upheavals as Maoism, the Indian state
things reflects that the interests of poor neither able to react, nor chase, them, and its security agencies need to win the
and the marginalised can be clearly shows they have honed in their confidence of the. people. The Indian
compromised under ariy dispensation. guerilla tactics to perfection, while the state as manifested at the local with its
The naxalite challenge rests upon the security forces do not have a counter bureaucracy and security agencies in
39
areas with perv~ive deprivation does not Manoranjan Mohanty had' three. intellectual discourse can create,
inspire-enough confidence. The pressures propositions in his perceptive study of regarding the current nature of the
of policing a high risk and high tension Naxalism in the 1970s: (i) The Naxalite movement as 'Yell as the post-revolution
activity such as Naxal rebellion normally movement was a pre-organisational society they would like to create, in case
brings out the worst in the police and movement; (ii) it practised ideological
they succeed. They need to indulge in a
security agencies, leading to custodial parallelism to a large extent social audit of their movement without
crimes such as torture and rape as well mechanically applying formulations of
compromising on the principles they
as fake encounters, which indeed indeed the Chinese revolution to contemporary
stand for. It is questionable if they can
have worse impact than collateral India; and (iii) the strategy pursued by . reach ideological high ground with
damage, for such acts are premeditated. the Naxalites was a narrow construction mindless violence they often indulge in.
Clearly, beyond the common parameters strategy and was not always one of Nax~sm throughout the course it has'
'like modernisation of equipments revolutionary violence. followed, has been part of the political
mentioned in the MHAAnnual Report as . Reviewing the movement in the churning going on in the country since
a strategy to combat Naxalism, current context he finds both change and independence. It is today facing far too
modernisation of rninds and attitudes IS continuity in each of the three complex nationai 'and global environment
required, which is easier said than done, dimensions. He finds their ideological
than in thel940s, 1960s and 1980s.
For, if we are talking of dealing with formulation still underdeveloped on the Nationally, it is functioning within the
Naxal violence in thirteen States, we are issue of class -caste-gender relationship,
universe of the liberal, what they would
referring to' thirteen State police though some of the groups have been describe as -bourgeois, democracy.
organisations and the Central para- active on the issues of nationality. Despite rejecting it, many of them have
military forces being used for anti-Naxal However, they have not realized or been involved with the negative
operations. This obviously makes the task accepted that the liberal-democratic
dimensions of the local power politics.
of police modernisation more complex. process in the country has created space Indeed, such engagements are explained
Maoism Today to accommodate people's causes. away as strategy, but they do lead to the
Second, he finds the Naxalites organised dilution of the ideological morality. Even
The Maoist expansion in the past few
into three major formations-one, having the ideological realities of the Marxism-
. years has been impressive, if not
rejected Cham Mazumdar's line, focused Leninism-Maoism have changed globally
phenomenal-from 55 districts in nine
on mass organisation and took with the collapse of the Soviet state and
states in 2003 to 156 districts in 13 states
. parliamentary path as well; second, far reaching changes adopted by China
in 2004 to 170 districts in 15 states in
continued Mazumdar's lines and rejected for its economic growth. The question
2006. In their strongholds in about 55
parliamentary politics; the third stream is whether it is taking these changes into
districts in 12 states, they run parallel
sYlJlbolised byCPI (ML) with the account while analysing its strategies
governments, which is not surprising
legendary Kanu Sanyal as its general remains unanswered.
given the retreat, if not collapse, of the
secretary. Perceptively, he sums up the
state in key social sectors such as
currelit stage of the Naxalite movement The Indian state, in fact, has far too
education and health in many states and saying:
much introspection to undertake both in
stranglehold on political power of those
While the state failed to recognise terms of policies and their
who. control land and other economic
the character of revolutionary violence, implementation. It has to go beyond its
resources. However, only thing
the Naxalites failed to abide by the knee~jerk.attitude towards a phenomenon
prominently known about their parallel
norms of revolutionary violence. like Naxalism. It is indeed not terrorism
government so far is the jan adalat,
in the traditional sense of the word,
basically kangaroo courts, and their brutal Conclusion
despite using terror as one of its prime
summary punishments that keep the V R Krishna Iyer, whom the tool. Therefore, even the immediate
people in the area l!.deqwitely terrified. Naxalities would certainly not regard as strategy of gealing with Naxalism must
The expansion of their area of influence inimical to their ideology and cause,. take into account. The questions of land
in 170 out of 604 districts of the country appeal to them to stop their mindless reforms and poverty alleviation in the
and the 'parallel' government they have violence. The July 17 attack on Salwa
country has ,to be strategised' for visible
been able to establish, give them Judum camp has raised several results at the earliest. Development.
sustenance in a dubious way, give them questions' regarding their tactics; Two
programmes must not be perceived as
a territory to train on and plan their things have in particular been striking. anti-people due to the displacement-
'revolutionary' foray against the state and First, the slaying of women and children
resettlement hiatus. Indeed, without
the people. This is impressive given their (as little as three years old) and, second,
economic development, strong"arm
legendary splits, many of them based on the presence of teenagers among their
tactics will not succeed against the
'ideology' and 'strategy', which ranks. Both raise disturbing questions, Naxalites even with the strongest
continued till recently. beyond the ideological maze that an possible anti-terror law. 0
40
Security
•
In the Age of Global
Terror
AS Kalkat
MAJOR impact of the terrorism can be attributed to the

globalising world is that . development of exclusive instead of
security can no longer be inclusive societies. Terrorism draws its
comparttnentalised strength from one of three sources:
regionally or nationally and 'militant religious fundamentalism,
any analysis of the security environment ethnic intolerance or deprivation.
of a region or area has to take into Religion sans frontiers, therefore
consideration global issues that have a religious militancy, has to be addressed
direct or indirect impact on the region. globally. Ethnic. intolerance and
Simultaneously the heightening levels deprivation are region-specific, with the
of political and social' expectations by common thread of economics running
the people and consequently states and through them, and are b~st. dealt with
societies are coming under pressure. regiollally or nationally.
The changed environment after 9/11 Since.Afghanistan the 'Islarnist holy
and the U.S. perception that the warriors' or jihadis, emboldened by
definition of national security is not defeating a superpower have constituted
necessarily common for all states a grave threat to countries that had
highlight the reality that in an inter- been insulated earlier due to their
dependent world' security cannot be strength' or distance. Militant Islamist
achieved at the cost of others, fundameAta1lsm in its new avatar as
. . .- (~ '.
, . In the long list of weapons of mass Al-Qaeda is now a global phenomenon

Terrorism needs a destruction available to the violent and a global threat. His-important that
societies there is a new player with an this form of religious fuildamentalism is
.top-down unlimited reach infinitesimally small differentiated from religious orthodoxy
which exists in all religions in some
approach whi~e cost of production, and fairly basic
<
.
Insurgency
.1
technology : terrorism in the form of the proportion or other, primarily to. keep
'human bomb'. No state, howsoever the flock together, and 'is no. threat to
powerful, is immune from this weapon society or the state. Militant religious
requires a bottom- that has the capability of striking from fundamentalism, on the other hand,
up approach outside or within. The genesis of advocates the use ,of unbridled violence
The author is former Chief, Indian Peace-Keeping Force (lPKF) and has had extensive experienc~ in combating terrorism and ihsurgency.
41
. to terrorise the population and the state is destruction of the established social
. the power, res~urces, and authOrity-~
to achieve their ends. The impact is not . system and structure, that is, the whole
the disposal of the state. Our laws were'
confined to specific regions or weak way of life offree societies. This virus made for the normal law-breakers and
and underdeveloped states but is faced does. not take long to infect homegrown criminals; our forefathers did not
across the board by all' societies, products imd soon enough local envisage the rise of this new threat to
entailing a global responsibility to criminal gangs get drawn into the
humanity and civilisation.
jointly confront it. terrorist's web. It is important to make
A structured two-pronged approach
Terrorism isa deadly act committed a distinction. between terrorism and
i's needed to combat the .new threat:
by highly trained and motivated people .insurgency, as different approaches are
first, a set of laws or 'rules of
who are 'devoid of humanity and ,have required to tackle each of them: .
engagement' for dealing with terrorists;
no value for human life. Tackling it on
conventional lines is unlikely to
succeed. In the fight against terrorism
the strengths. of a free society are a!so .
its weaknesses. Terrorists use the rights
T errorism needs a top-down
approachwhiIe insurgency
requires a bottom-up approach.
For an insurgent movement to flourish,
secondly, a special force organised and
trained to operate under these special
laws, with the authority to operate
domestically and externally to prevent
it must have support of a segment of the disconnect. This special force should be
and liberties inherent in a democratic
population whereas terrorism can be supported by a dedicated counter-
society to operate with comparative
effective with just a few sympathisers terrorism intelligence unit, the
freedom and then use the democratic
and supporters amongst the popuiation. composition of which should be not the
laws to circumvent or evade the
In tackling an insurgency, it is a fight for usual police and intelligence operatives
consequences. World leaders make
the 'hearts and minds' of the people and but social and political scientists,
profound statements like 'if ,you
the people have to be addressed and psychologists, and cyber and financial
sacrifice freedom for ~ecurity you end
won over. With. terrorism the leadership experts. This is not to suggest that law
up getting neither' and then promptly
or perpetrators of terrorism need to' be e~forcement agellcies do not have a
proceed to laws in their own country to
targeted. Insurgency usually has rural role. Law enforcement is central to
curb civil rights and liberties to ensure
roots while terrorism has an urban bias. sustaining the normal way of life and
security, underscoring the point that
The terrorists are as well trained as, and vital for domestic intelligence gathering.
extraordinary circumstances need
often better equipped than, an army However, operations against terror
extraordinary measures.
, . soldier and to pit out paramilitary and groups require capabilities more akin to
There are no 'good' terrorists, police forces against them is an unequal the military; this requires highly
whatever their grievance or cause. Nor equation. Our ~pproach .so far has been specialised forces and a dedicated
does terr6rism' have a religion. There to deal with it as a law and order issue, . organisation. This may be the time to
are or have been terrorists belonging to . which being a state subject results in constitute such a force in India .
almost all the religions of the world : to different states having different
associate terrorism with any particular The impunity with whic!t some
approaches to the problem' and
religion is upjustifiedand unfair. The complicating terrorists, after committing heinous
the requirement of a
'coalition' in the fight against terrorist crimes, escape to countries' across the
countrywide coordinate approach
and religion together even though, in against terrorism. Delays in the judicial border or overseas leads to a feeling of
this instance, it militant 'Islamist' helplessness. It leaves the law
process add to the problem.
organisation is the perpetrator. enfor~ement agencies the thankless job
We are' a party to the 'global war of dealing with bureaucracies and the
. Fundamentalists very much want this to
against terror', Wars are fought under laws of different countries. The world
be labelled as the 'clash of civilisation',
the articles of war, not under civil laws. community needs to formulate a set of
- which serves their purpose of putting all
Given that this war is not like special international laws to overcome
Muslim countries and Muslim
conventional wars, the military is this hurdle. India is na't a soft state; it
populations worldwide under pressure.
perhaps not the ideal force to deal with just has a higher tolerailc~ level than the
The terrorist groups are not ordinary it. Neither are the conventional police West. The danger is that, at some stage,
civilians or some misguided youth but and paramilitary forces the best option.
a frustrated and anguished population
the paramilitary organs of militant When the enemy has already crossed may react and decide.that enough is
extremism such as LeT, Naxalites, and the. borders, he cannot seek the enough and' take the law into its OWn
the like who believe in the culture of protection of civil law and has to ,be
hands. We need to develop a capability
extreme violence and whose objective fought wherever and however with all that enables us to send the message that
42
e shall get you wherever,andhowever' series in Sri Lanka, where after the is of great urgency.A developed society
and that the Indian state will not be a Colombo bomb incident some of the is highly dependent upon public
mute spectator to the murder and media unwittingly went into a frenzy utilities, technology, energy, instant
massacre of its citizens and children, Atover the security concerns of Indian and communication, rapid travel, and
the same time, NGOs and like-minded . South African cricketers. The fact that prompt medical aid to sustain its way of
organisations need to. focus their' the prime targets, if at all, would have life. Highly ind'ustrialised states are
resourcesand energiesonaddressing the been the Sri Lankan cricketers and that therefore far more vulnerable to
problem of terrorismfrom a societaland top Indian diplomats would be a much terrorist attacks than countries with 'rice
sociological.imgle, which is the only more important target than the and fish' economies. The spectre of
long-termremedy,This is the preventive cricketers escaped the minds of many. terrorism haunts us as an omnipotent
aspect In the campaign to reach out to In the event, South Africa withdrew its and omnipresent phenomenon. Living
the people, the police forces are not theteam and the terrorists achieved their in fear of terrorist attacks is almost
, right vehicle,given the publicperception objective. This is not to suggest that the becoming the. way of life. Today the
of their conduct, which is unlikely to media should underplay the threat 'of . question is not 'whether' but 'wheJ:land
inspire confidence or win friends, terrorism. In fact, they have a vital role where' they will strike again. This will
to play in sensitising the public to this result in people fearing to venture out
The objective of terrorism is exactly
threat. However, they need to exercise of their homes, not a good omen for a
what the name implies - to terrorise the
care that this sensitisationdoes not whip democratic society: The time for
popuilation, If it does not receive
up public hysteria. analysis is over. It is time for action
publicity, it cannot succeed. The media,
before we reach the stage of 'paralysis
the public, and politicians can play an India is rapidly reaching a high level
through analysis' . 0
important role in denying this. A case of development and meeting this threat
in point is the recent cricket 001 tri- is central to our economic progress and (Courtesy: 'The Hindu')
i"KJ'~.'".,'".erM:it,T~INadu;.I-tillulchat\ t
sU"" .,'.'\ siory,~as als(}s~en ari~pcieas~ze(. survey;~
,•,'•.•.,.....
'.".'"
"',...e;a.?esh,.q?jarat,Pqnjab and •.• inthe?umbe~?fmalnq~shed ~~dern. .
.""'..> .'" "H~ana.J~rJong tJieposte~ ~ring th~Jast eignt ye~r~,.West undertl0urished!;ifhilarell~as gone\\!p
,bo);s ofdev~lopm~nt, have}over th<f:.,.Beng~has.~~enthe n~ber of.~~vereIY'%;,from 54per.~~t()f 60~FC ' '
Yfat~:eg~fsse? '\\j.~~nit~9mes til'i mal~~urishe?phildreI\go up ftom p'surveyh~s re~or~edi~ri~~
pr;~,vIdin&'.tllu.tf1tlO?lto chIldren. I~l per~~?t of l~per cent.} , '. ",','numb~rofse",~relYUnde'fIl0u.ed
cOl~~rast,Onss a!.~sshd:wn som~:'I1it~dbn1Prades1l;, the' mjrtlberof'y .chiIdr~h,to33f~er; ce om5~eper
p~o~ss ...•....••.....
'...\. '., . .' .',.'....gross!yunde~eightcpildren h~sgonecent;ightyear~ago. ............•....
.'.....•.••..
•.~\rhet~d.an~la~l$tedt!i;~m of ~S
'up~~ 9.per cent toJ3per.\~nt.,. Od~sa,kn~'\\jn.'for.hung~~.\a?~
'~a.ti;ona~.!~~1 ..~lth;,Sur;e"tii.~~ae~~too, . a Pr~llesh~\ dro~gIit zotl~s,bas j;~p()rted~ome.
(.~FHS) g~rnt.•....... i1 t~~et;Y. eIght reg~ssed,. ~~th 79 .......•...•.....
i .• cent. c~i1dre~ 'progt~sS, .. the p~rcentai~ ..of'
Y~~' ~as;f?un~t~~!t,he~~v~~o~~, 'belo~theage oft4J:eeana~!llic, .as:' sev .... m~ ..•........
'sh~~hi1dre~.going
~tat~s. hfi~e sh~~~dm.~;?Vldm~i opposedtolZ:3 percent int-l!e 1998 down> m 28to18p€fccent.
nutr1tlOn~OC~lld~~n~lnee 1998- .' . . '., .....,y
1999, wlf~n theiast survey was
0l;1!'They~ave imp~oved 6'n
.(:a;~ried.
9therhutRan(ievel()pmentindices, '
tnpugh,'
,,-« - .",' ---,." .. '.'.
Gujamt. . ....
A startledMa~byaPr~8esh Undem6urished%kids
'~ject~d ~ .•finctings.of.th~survey; Sever~lyundetn~shed
HimaChid Pradesh
'In K~ra1~;thin~ber ()~extremely Undemourishedkids
-undemoupshed .cIil,ldI'ell~~~alm?st Sevelfly .undemqurished
dtlUbled;.'Fi1enl,lm6er.ofun?~rweig~t Baryima "
cliildrenhas ms ne,up:l Undemourishedkids
Severely.'.undetn6urisbed
\.;Tamil:;;;Nadu, sidered.another
43
YOJANA Febrmiry 2007
Violence o
o Central Bihar
Devendra Mishra
_Subhash Sharma
Out of box thinking is neededJogo into the cultural roots

of violence in central Billar
VERYBODY TALKS about income but it iSilbout more. It is about period of development of a country
",' the weather, Mark Twain prospects and networks and life concerned. If one or two of these central
once observed but nobody chances. It is more harmful- to the
E., problems have been growing worse,
" does' anything about it. The individuals, more. damaging to others especially if all three have, it would be
same i.s true about violence self-esteem, more corrosive for society strange to call it 'development', even if
in central Bihar. The roots of violence
, , as a whole, no more likely to be passed per capita income doubled.
- is the subject of endless commentary, down from generation to generation
most of it without prescription. than material poverty. Poverty includes An in-depth analysis of various types
not only economic but also social and of violence in Central Bihar reveals that
Recent violence iIi Manipur Village while in 'the beginning the killing of the
cultural dimensions. Relationship
in Sekhpur Distt., and Gciachak Village between distributional and relational landlords and looting of crops/grains
has only highlighted the gravity and questions lies at the heart of social were primary strategies, now the
urgency of the situation. In Central exclusion. Unemployment further adds imposition of economic blockade or
Bihar, the various incidents of violence sanctions (preventing labourers to do
fuel to fIre: Channels of upward social
have occurred either in the name of agricultural tasks in the landlords'
mobility are gradually being closed off,
caste or due to land related issues which fields) and holding of 'Jan-adalat'
a phenomenon with crucial'
are often intermingled. But the crux of (people's court) to punish the oppressor
consequences for both the stability and
the problem.is poverty, long term the dynamic evolution of society. are primary strategies (though killing is
unemployment, material deprivation, still considered relevant). At present,
Several years ago, Dudley Seers in
social deprivation and finally social economic sanctions are usually imposed
his article "The Meaning of
exclusion. Basically, it is the by CPI (ML-Liberation) whereas Jan
Development" ,(International
questioning of bur social, and economic Adalats are usually convened by the
Development Review, Vol.lI No.4),
order along with democratic credential? Communist Party (Maoists). As the
stated -
Is this the absence of peace; or supremo of Ranvir Sena, Brahmeshwar
enormous growth of poverty and "The questions to ask about a Singh Mukhia remarks about the
unemployment, inequity and growing country's development are: What has _ blockade: "The Naxalites have
disparity? Whatever it may be the been happening to poverty? What has destroyed the farmers of the state. They
problem is far more serious. been happening to inequality? What has harass us, extort money, instigate
been happening to unemployment? If all workers not to work on our fIelds, and
More than anything, it is about social three of these have become less severe, declare economic blockade which has
exclusion. Social exclusion is about then beyond doubt this has been a left more than 40 thousand acres of
The authors are members of Indian Revenue Service and Indian Administrative Service respectively. The views expressed in the article'
are strictly personal.
44
YOJANA .February 2007
-- ~
--- --....
2005(31.10.2005) 2006(31.10.2006)
2002 2003 2004 2005
I ..•...Incldents __ Police personnel killed •..••.•Clvlllsn••kIlJed"*"Naxsllle. kll!8d I
8 ..
of Incidenls -- PolIce peraonnel kllIed •..••.•CIvilians kDled "*" N8ll8Dtes killed I
Head 2005 (31.10.2005) 2006 (31.10.2006)
Head 2002 2003 2004 2005
183 No. of incidents 161 89
No. 011incidents 239 250 323
05 24 Police Personnel killed 20 05
Polletl Personnel killed 06 26
166 70 Civilians killed 59 34
Civililms killed 111 102
09 01 10 Naxalltes killed 07 04
Naxalltes killed 22
-MHA
cultivable land barren in the Bhojpur attitudes) is more pronounced in Central economic sphere included demand for
district alone." Now one more pertinent Bihar than in north Bihar. Fourth, the occupancy rights in lands in their use as
question arises: why there is more mode of agricultural production and well as reducing high rent on caste
number of incidents of violence and productivity is more advanced (in terms ground while negative economic actions
more gruesome violence in Central of better irrigation, double cropped included refusal to perform 'beggar',
Bihar than in other parts of Bihar. area, use of HYV s of seeds, use of refusal to do menial tasks and to pay
Following points are relevant First, in chemical fertilizers and insecticides) in extra-legal cases and refusal to sell
Central Bihar the proportio~ of Central Bihar, which, in tum, sharpens products to landlords and moneylenders
scheduled castes (dalits) population is the relationship between the landowners at lower than market rates. Again Kisan
relatively higher than that in north and the labourers regarding the share of Sabha was active in this region since
Bihar; e.g., the population of da1its in surplus created. On an average, two 1930's. Similafly, this region was a
Gaya is 26 per cent, in Nawada 25 per thirds of gross cropped area and three- fertile ground for the emergence of the
cent, in Aurangabad 23 per cent, fourths of net sown area in Central socialists in 1960s. Even earlier in
Nalanda 19 per cent, Rohtas 19 per cent Bihar is irrigated while the same in Central Bihar, there had been' an
and Bhojpur 15 per cent, against the North Bihar is far less. Fifth, the literacy alternative religious-social order in the
state average of dalits population being rate in Central Bihar is more than that forms of Buddhism, Jainism and
15 per cent. And numerical strengths in north Bihar, hence the 'culture of Sikhism, as a challenge to the
counts in democracy not only in silence' is being replaced by the 'culture .hegemony of Brahmanic Hindu social
elections but also in daily life to protest of questioning' due to better and more order. The famous agitation led by
with more confidence and morale. awakening of the rural masses .. Chhatra- Yuva Sangharsa Vahini against
Bodhgaya 'math' is also very significant
Second, in Central Bihar most of the Finally, there is a very rich tradition in the context of central Bihar.
landlords belong to two traditionally of dissent and protest in central Bihar.
dominant and aggressive castes, namely, For instance, formation of Triveni As a land reform measure, lands
Bhumihar and Rajput and two emerging Sangh (Organisation of Yadav, Kurmi, were distributed among the poor
dominant castes- Yadav and Kurmi, and Koeri) on 30 May 1933 in landless labourers for agricultural
while it is not so in north Bihar where Kargahar Thana or present Rohtas purposes, out of ceiling surplus land, or
in some regions Brahmins are in district) led the movement of three bhoodan land or gairmajarua khas land
majority and in other regions most backward castes for higher status and but the new settlees are often
backward castes (included in Annexure- their protest against the upper castes dispossessed by the landlords, or the
I by the Govt. of Bihar) are in majority centered in central Bihar. Their positive latter are in practical possession and
but they are not much dominant in terms actions in social sphere were wearing of distribution of land exists only on paper.
of landholding. In Central Bihar, in sacred thread, focus on children's It is important to note that out of 6.48
some parts Kurmis and Yadavas are education and intra and inter-caste unity lakh acres of the total bhoodan lands
new dominant landlords. willIe negative actions in social sphere. available, only 2.87 lakh acres (44%)
included restr~ning early marriage and were confirmed by the officials.
Third, social exploitation and
avoiding non-vegetarian foods. On the Secondly, only 39% (2.54 lakh acres)
distancing (especially sexual
other hand, their positive actions in has been distributed so far. Thirdly, a'
exploitation of women as well as feudal
45
major chunk of 2.79'lakh acres (43%) Feudal attitude (Samanti Vichar, as ties is one of the main problem of th~
is shown as not distributable due to is called in Bhojpur) of the upper twentyfirst century and for successfully
being hilly area, river portion; forest castes, untouchables has often been transforming Bihar" economy is must.
area, duplication in the plot numbers, instrumental in igniting the caste tension But in the end, problem can be solved
untracing,.etc. Finally, about 1.15 lakh and conflicts. The upper castes often by changing the basic structure of
acres of land (17%) is pending for dislike the lower castes sitting on their power and domination. Channels of
confirmation and distribution. This cots at home at former's visits, or upward social mobility should also be
shows the lack of political will, apathy wearing good clothes, shoes or sacred gradually strengthened for stability and
of the, administration and misdeeds of threads. As Jagdish Mahto, the founder dynamic evolution of society. Land
the donors. As far as central Bihar's of naxal movement in Bhojpur told his reforms are one of the important steps.
position is concerned in ~s regard, still wife before going underground: "when For example, nearly 13 lakh acres of
a large chunk of bhoodan lands is not I have no izzat (dignity) left what is the agricultural land was acquired and
distributed: point of living."20. The untouchability redistributed to the landless poor in
and other forms of social distancing rural area of Bengal. Such a massive re-
Out of 1.67 lakh acres of bhoodan often lead to caste.-conflicts, both at distribution of wealth has helped to
lands available in central Bihar's eleven religious and secular public places mitigate agrarain tension. According to
districts, only 35% has been distributed (schools, markets, bus station, fields, Prof. Pranab Bardhan "The sharp.
that is less than the state average of chaupals etc.). sexual exploitation (in
decline in extreme poverty in China
39%. Not only this, even the ceiling terms of having kept, eve-teasing, rape, , may have more to do with the 1978 land
surplus land cases in large number are obscene gesture, and remarks) of lower,
reforms then foreign trade investment".
still pending in different revenue and castes' women by the upper castes'
higher courts. In November 2005, in the males has been a very signifIcant cause
A strong desire to correct historical
entire Bihar 1433 such cases involving of violence. Over the years, caste is injustice, out of box thinking is needed
1,12,696 acres of land were pending of changing its traditional role from to go into the cultural root of violence
which 512 cases involving 35090 acres integrating, h-armonic and non- in central Bihar without eschewing the
were pending in Patna High court and antagonistic to disintegrating, need for urgency, it i~ equally important
Supreme Court of India. In 11 districts disharmonic and antagonistic. In the that steps and decisions taken are on the
of Central Bihar, 244 cases of ceiling first phase, there was focus on caste as basis of reasoned argument rather than
are pending in which the total area a group of endogamy CIati ki beti jati immediate knee-jerk reaction of any
involved is 9015.8 acres. In this region, ko') and commensality; in the second incidents of killing or emotional
Gaya, Kaimur 'and Nawada stand fIrst, phase, it expanded to caste for political
outbrust. In the end, a holistic approach
second and third in terms Of the support 'jati ka vote jati ko;' in the [mal is needed in tackling the escalating
maximum area involved in such phase, caste further expanded as an violence in Central Bihar. There is
pending cases. As per Bihar govt. data organized force to grab from others,
absolute decline in agricultural
(October 2005), 4663 cases of protect from others, and hurt and damage
production per capita and an even
dispossession were reported from the others 'Apni jati bachao, doosri jati
steeper absolute decline in foodgrain '
entire Bihar involving 2868.98 acres bhagao alITmitao' thus 'we versus them'. consumption/production per capita.
against which 3845 persons were given
Since at the core of it is to overcoming
possession involving 2323.40 acres; Thus, the consequences of violence of the agrarian crisis, therefore steady
thus still 318 persons are dispossessed are very severe-some visible but others increase in per capita cereal
of 545 acres of land. In central Bihar invisible, some short-term but others consumption in the violence affected
region, the situation is alarming, for long term, some localized but others area will go a long way to mitigate the
instance, in Kaimur where 476 persons trans-village/region. Hence, the need of problem. People particularly the
are still dispossessed of 210 acres of the hour is enlarging the spread of
marginalized and deprived people of
land, followed by Gaya with 52 such primary and secondary education and
Central Bihar are just like Camus
persons dispossessed of 50 acres of by providing free access to information
"outsider" who do not play the game
land. In other districts of the region, to take various pro-active social, and who are like outsiders to the society
situation is reported to be almost economic, cultural and political in which they live, wandering on the
satisfactory. However, it is not ruled out measures to prevent the occurrence of
fringe, on the outskirts of life, solitary
that some genuine cases of the violence because due to merely
and ready to die for truth and dignity
dispossession are ignored by the local curative devices and reactive measures and rights. Finally, it is no longer revolt
.revenue officials or the matter is not the society at large has paid a very
of poor against rich but it is a
reported to them by the victims because heavy price and continues to do so at' 'metaphysical revolt. The revolt of man
the former are not active and sincere in present. In the context of social
against the condition of life, an inborn
this regard. fragmentation, strengthening of social impulse! 0
46
TASK FORCE set up by PM • Reconstruction and maintenance of
A
Manmohan Singh to look into existing physical assets
. Jammu and Kashmir's • Comprehensive fiscal adjustment
~~
i. .. i infrastructure problems has • Investment in physical infrastructure
. ....--J recommended the transfer of like power and roads
a 390-MW power project from the • Investment in social infrastructure like
National Hydroelectric Power heath and education
Corporation to the state, a Rs 1,750 • Creating climate conducive to private
cron: road development scheme and a investment
satellite business hub for Srinagar. • Balanced regional development
"Demonstrable successes" in the
form of heavy investment by the private With power being a problem area for Stressing that inspmng the
sector. That's part of the prescription the the state, the panel has suggested that the confidence of potential tourists as a safe
Prime Minister's task force has for Dulhasti hydroelectric project and 1,020- and secure destination is the most
development in Jammu and Kashmir. MW Bursar storage scheme be transferred important challenge for the sector, the
Many benefits of the India growth to the state from NHPC. There is an task force has called for a "tourism
story are bypassing Jammu and Kashmir urgent need for a policy framework to vision document" for the road ahead.
due to the negative investor perception develop hydro-power, the panel added. Other recommendations include up-
about the security situation in the state. The taskforce al~o pointed out that grading skills and service standards with
"The state needs to attract some large though tourism has been picking up, it the help of leading hotel chains,
and medium industrial houses to invest has hardly reached the pre-militancy upgrading the Sher-e-Kashmir Complex
in tbe state," the panel, headed by the levels. To reach that level, the panel with state-of-the-art facilities,
chairman of the PM's Economic added, the government needs to harnessing heritage tourism and increase
Advisory Council and former RBI modernise airport and fast-track road and expenditure on tourism promotions.
governor Dr Rangarajan, has said. rail projects.
Road. density in the state is among
The panel's recommendation for Pointing out that farming techniques the lowest in the country and existing
mainstrearning the state into the national are outdated, the panel said there was a roads are in poor shape. While it is
and global economy include a slew of need for better sorting, grading, necessary to improve and expand
quick-yield projects and a foundation packaging and cold-chain storage highway corridors, it is equally
for long-term economic growth. facilities. Road density in J&K is amongst important to connect towns and villages
the lowest in the country and the panel to be main corridors through an internal
Pointing to the fierce competition
has called for expansion of highway and network, the report has said.
between states in attracting domestic
corridors.
and foreign investment, the panel felt The systems -and processes of fiscal
Jammu and Kashmir was "severely The panel has also pushed for revival
federalism that work for the rest of the
handicapped" due to its poor of infrastructure in rural J&K. The panel
country "are not necessarily optimal"
infrastructure and distance form the feels that such an improvement will have
for J&K. "The content and process of
major markets. A Special Investment huge' peace dividends.
development of J&K has to be designed
Zone is one of the measures the panel A short-term measure that has been keeping in view the state's unique
has suggested for the state, where recommended is to hav'e hotels currently historical, institutional and political
several factors have resulted in a classic occupied by seeurity forces. vacated and factors," the task force has said in its
"backwardness trap" of low economic returned to owners who can be given soft report submitted to Prime Minister
activity, low employment and low- loans to renovate them quickly. Manmohan Singh.
income generation. Projections show that the state needs
In its report, the C Rangarajan 6,000 additional beds by 2010 and The task force, constituted by the .
Committee has also asked for another 3,000 by 2015. Tented Prime Minister, focused on
improvement of health, telecom, roads accommodation-a concept the state infrastructure like roads power and
and tourism sectors, improved fiscal pioneered in Pahalgam-should meet the telecom, employment-generation
policies, and an urgent image makeover need till existing accommodation is initiatives in tourism and horticulture
for the state. upgrade,d and new rooms added. and social infrastructure like health. l:!l

-. 1 _
PM Pitches for Peace Treaty with Pakistan
P
rimeMinister Manmohan Singh put the past behirid to think about our "We welcome all ideas as they
has welcomed President Pervez collecti,:e destiny," he said. contribute to the ongoing thought
Musharraf's four-point formula process," Singh said, adding that if
for peace and renewed his offer for a He expressed confidence that this
could be achieved. ''If our minds are both sides approached the issues with
bilateral treaty of peace, security and an "open and friendly mind and work
friendship, which he said would be an determined and focussed on this goal,
together on resolving each of these, it
instrument of enduring peace and I am confident that this destiny c~anbe
realised," he said. will be possible for us to resolve all
prosperity. pending issues."
Singh said a treaty of peace, security
Reaching out to Pakistan with his
and friendship was essential as it would Expressing confidence that the
'vision' of Indo-Pak ties and
become the instrument for realising two neighbours could continue on
welcoming 'new ideas' from Pakistan,
"our collective destiny and the basis for the path of peace, he said, "This is
he said the two countries needed to
enduring peace an~ prosperity in the possible and we will make it
work together with' an 'open mind' and
region." happen. This is not a dream, it can
build trust.
be a reality."
Addressing a rally in Amritsar, he "Last week I read about some new
said India was working towards better ideas and thoughts expressed from "I am confident that if we continue
Pakistan," he s'~d,referring to President on this path of peace, Amritsar can
ties with Pakistan, but the process did
not have a time frame. Pervez Musharraf's four point formula once again regain its glory as a major
to resolve'the Kashmir issue, which centre of trade and commerce. I
"The destinies of our two nations included demilitarisation and joint believe this is possible and we will
are interlinked and there is a need to management of the undivided state. make it happen," he said. .•
. " '"'" -~"... ~"""'~ ..,., .. _"

Santa Comes Calling at Gulmarg, after 17 years
Visitors enjoyed a "',\11ite Christmas," as a thick blanket of snow coyered the landscape
I
was
t altogether a different scene A hirge number of foreign and which featured snow scooter race,
at Gulmarg in Jammu and Kashmir domestic tourists, besides locals, skiing and a cultural programme and
on 25th December'06. joined the Mass. "This is symbol Of a cultural programme.
our rich culture, which stands for Authorities are bracing up for
Christmas was celebrated amid
tolerance and brotherhood," said a major winter tourism events this
fanfare, with the State Gove1J1ment .
resident pointing to the decorations at season. However, the Gulmarg
launching the Kashmir Snow Festival
the church. Gandola, the world's highest, cable car,
to attract tourists from all over the
world. Gulmarg wore a'merry look with is not making much business. It
.tourists taking active.part in the festival, -remains closed most of the time. a
Visitors got to enjoy a' "white
Christmas," as a thick blanket of snow ! BRINGING PEACE
covered the landscape. Besides a
Christmas Mass at the century-old
Church, which was thrown open to the
public after a gap of 13 years in 2003.
Santa Claus came calling after 17
years.
People had fun playing snowball

with the Santa.
"I am here with the message of

peace as we yearn for peace,
prosperity and tranquility in Kashmir.
I am here to pray for peace," said
Sarfaraz Khan, a local. resident'
dressed as Santa Claus.

Good Morning Kashmir 24/7 Music in Valley

ashmir firs.t radio jockey, Stationedin a makeshift studio in the women's programme, with walk-in
K trying to get audiencefor his

24-hour FM station (Big
FM) launched in the state recently.
campus of Radio Kashmir, the station is
functioning from two-room space inside
what looks like a tin container. Three
guests interacting with an anchor.
Another three hours every evening
will be dedicated to music, also
jockeys and a few engineers will man hosted by female radio jockey. The
In the Valley that goes to sleep at
the station in the first few months. rest of the day and throughout the
six, the channel, from the Adlabs
night, the listeners will either have
Films and the Anil Dhirubhai Group,
Twenty-five-year-old Izhar Rishi, pre-recorded programmes of just f1lm
may t:ven,mean a lifestyle change.
picked up after auditioining about 300 songs, "As we grow the channel is
The station head, Parvez Malik, young men from across the country, is also growing", says Malik.
says: "For the city which sleeps at six, hosting Big Nun Chai (Kashmiri salt
now people can rock throughout the tea on the lines of Big Chai, the While the male jockey is
night. There. is hardly any electricity morning show aired in Big FM's 45 comfortablewith revealinghis identity,
and radio can be a good option." other stations). Rechristened 'Smile the female jockeys are not. Sara Khan
Though there are no phone-in Bhai' after rigourous training in (not the real name), a practisinglawyer,
pro~rammes initially, the show Ahmedabad by radio trainer Dano loves talking to people but prefers not
received a 600 SMSes in the first three Day from US Rishi says his mission getting her photograph taken. "Just
houn, of its launch. Another 300 is to bring. smiles to Kashmidfaces. securityreasons,but you will get to hear
followed in the next few hours. The Nun Chai is followed by a my voice everyday." she says. 0
Srinagar Home to W~r1d's largest Tulip Garden

mid exploding bombs and the During the last one year, various famous gardens of Kashmir by the
A stench of cordite and

trinitroglycerine, the flowers
continued to bloom in Kashmir and in
steps have been taken to control
encroachment around the gardens and
parks and a full-fledged drive was
department."
Saying that the secret behind the

large numbers. Citizens and lovers of beauty of the "paradise" lies in its
nature would, perhaps, rejoice alike to gardens, the Chief Minister Mr
know that Siraj Bagh in Srinagar is Ghulam Nabi Azad advised officers
fast emergingas one of the largesttulip concerned to categorise the gardens
gardens in the world, a site where 2.50 and parks in A, B and C to regularise
lakh tulips will bloom next spring. their maintenance and beautification
jobs.
Tulips are cultivated in Kashmir
which is the only place in India where Mr Azad also asked the
they bloom from March to May in department to ensure a good supply
natural climatic conditions .. of Chinar saplings to all government
.Cultivationof tulips has recently been high schools and ensure their
':considered an attractive prosposition plantations next year. He said that
:;pyniany farmers in the region who are he has already advised school
:>'shiftingor diversifying to the crop. launched to maintain the parks and authorities to plant saplings of
The tulip garden in Srinagar has gardens efficiently. As a result of a Chinar and other trees in their
'beep thrown open to tourists for over record arrival of tourists during the premises. He also advised officials to
: the past two years and is still a new months of April, May and June; a encourage private sector entrepreneurs
.attraction for visitors and nature lovers revenue of Rs 75 lakh was realised this dealing with production of flowers to
in the Valley. year in the shape of tickets to;the invest in the state. 0

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Sachar Committee Report

Imtiaz Ahmad
OR A healthy nation it is social standing is likely to be greatly educational attainments, is likely to

necessary that all sections influenced by its social ana economic disturb a whole lot of people who are
comprising it should develop profile. If the community has .a prone to thinking that and believing that
together. If any section of the preponderance of lower social strata, its Muslims have stood higher than the SCs
society lags behind or is not position will naturally be considerably and STs and this is sufficient to indicate'
able to benefit from development, lower: than another community with a that Muslims have been the target of an
policies, the nation .ought to be preponderance of better off social insidious process of discrimination
concerned. classes. which the state is obliged to eliminate.
It cannot be denied that as a minority
. It has been a continuing complaint of The Sachar Committee had to look
community Muslims are susceptible to
Muslims that the process of at all these complexities and come up
varying degrees of discrimination.
development witnessed by the country with a rounded picture of the socio-
has by passed them and they were being economic condition of Muslims in
What the Muslim performance vis-
left high and dry. The Sachar contemporary India. Its report has
a-vis the SCs and STs suggests that the
Committee was appointed by the Prime broadly concluded that large sections of
latter's better performance in certain
Minister so that an assessment of the Muslims continue to remain deprived
sectors of life, particularly education, is
social, educational and economic and margnialised and there exists a
not because discrimination against them
conditions of Muslims in India could strong case for carefully planned
has lessened. They are still treated as
become available. interventions should seek to ensure
untouchables and continue to be far
that the dismal picture in respect of
Muslims are a large and diverse more deeply stigmatised and
those sections of the community who
community and are dispersed in all discrimimited against Muslims. What it
continue to be depressed' and
parts of the country. Any assessment of suggests is that the SCs and STs have '
disadvantaged, whether in
the community's socio-economic and been able to take advantage of the
educational or socio-economic terms,
educational conditions of 'the opportunities which have become
changes.
community has to take cognisance of available to them. Clearly, a key
this diversity and recognise that its . There is considerable scope in the determinant of the increased access
standing cannot be a function merely of report for it to be read differently by available to the SCs and STs in
its religious identity. It is likely to vary different people. This is natural because education and employment is
according, to regional and social with respect to Muslims a wide variety affirmative action, but the bottlenecks .
divisions prevailing within the of perceptions and interpretations have that the SCs and STs have faced
community. For example, if a region has been prevalent over a long time. For historically are also far more severe.
not experienced economic example; the observation of the Sachar Under the circumstances, a natural
development, the entire population of Committee Report that Muslim conclusion that sections of Muslims
that region is likely to be depressed and situation is a little better than that of the would draw is that the benefits of
backward. Likewise, the community's SCs and STs, especially with respect to reservation should be extended to them
The author is former Professor, Political Sociology, JNU, New Delhi and has worked on issues relating to Muslims.

to equalise their chances of benefiting from the same stigma as characterises (Socio-Religious Community) to which
from development processes. the SCs are clubbed along with the one belongs. It is also a function of the
Muslim OBCs. Both justice and fair assets and resources that a group or
Perhaps the most relevant part of the play would require that the bar currently family is able to mobilise as it seeks
report is the discussion of the internal placed on Arzal Muslims, and Dalit socio-economic advancement. Those
divisions that have been historically Christians, from enjoying the benefit of endowed with similar or comparable
prevalent within the Muslim community reservation for SCs and STs should be assets are more likely to achieve a
in India. While the myth of the Muslim removed so that they too are entitled to similar level of socio-economic
minority-the idea that all Muslims are those benefits. Further, if many more advancement. If the data showed that
one and there are no social distinctions Muslim OBC groups have become despite access to assets and resources
within them-has been a dominant marginalis~d or continue to be deprived sections within Muslims performed
feature of the discourse about Muslims, of developmental benefits, they can be differently, then there would be cause
they have always been divided within put on the Schedule of OBCs. This will for worry. This question is pertinent
along the axes of caste or caste-like ensure that they have increased access because a serious perceptual issue is
groupings (often described as zats or to development benefits., For other involved here. It is whether the
biradaris) and social assets. Following groups of Muslims, many of whom may differentials that characterise Muslims
earlier sociological writings, the report be deprived or bereft of the benefits of and other SRCs are a function of
has discussed Muslims in terms of development to the same extent as religion and ethno-religious identity or
Ashraf (upper or noble born), Ajlaf others, the necessary condition would of other tangible and not so tangible
(converts from artisan and menial be to exert better. At the same time, as factors. In other words, if it is held that
castes) and A{zal (lowly) and shows, the report indeed makes a forceful plea, the differentialS are a function of ethno-
though not in substantial detail, that the' state should ensure through. religious identity then nothing short of
differential performance as well as appropriate public policies that isolating Muslims and treating them
access to developmental'benefits is prejudice, discrimination and sense of aside from others would be the way of
closely associated with location in terms grievance which act as dampers to ameliorating their condition. On the
of these axes. In other words, the Ashraf groups entitled to equal opportunity ate other hand, if it is held that socio-
are more generally advantaged, the removed. economic advancement is less a
Ajlaf are substantially deprived and the function of ethno-religious identity and
Arzal are extremely marginalised. This On the whole, while the findings of. more an issue of assets and resources,
finding of the report has a direct bearing the Sachar Committee are significant then obviously the emphasis would
on the assessment of the social, and ought to be acted upon, the have to be shifted to the creation of
educational and economic standing of the methodology followed by the assets through ge.neral economic
community and the interventions required Committee has brought to the fore development rather than isolating one
addrel"sing Muslim marginalisation. several substantive questions which SRC for amelioration.
deserve careful consideration. If those
Affirmative action is one effective questions are not clarified and settled, The second question relates to the
instrument of in"creasing access to there is serious risk that the debate on principle of proportionate
developmental benefits and promoting the report in the days ahead would be representation in the different sectors of
equity. One question raised by the caught up in the quagmire of life such as economy, politics and
Sachar Committee report is whether unwarranted communalism. education .. One line of reasoning that
affirmative action should be extended to has dominated the discourse of well-
the community as a whole, which elite One question relates to the principle being of Muslims is that they should be
Muslim classes will definitely welcome, of comparison across communities. represented to the extent of their
or whether it should be limited to those What principle was available to the proportion in the population. The
sections that have remained Committee to decide that there was a Sachar Committee report has invoked
disadvantaged and marginalised as a need to look at differentials across this principle time and again in making
-result of their overall weak economic communities? Should one not have its assessment of the relative postionof
and social position. On this question the moved beyond to the specificities of Muslims in the different sectors of
. Committee's perspective is ambiguous. those sections and families among - social and economic life. Where does
Fortunately in the case of l\1uslims Muslims that display similar levels and this pnnciple come from? There was a
affirmative action is already provided to those that are disparate? Success or time in Indian politics when the
those sl?ctions that are classified as failure, and more particularly levels of principle of parity was widely espoused
backward classes. One anomaly is that socio-economic development achieved, and propagated and distributive
Arzal Muslims, whose social situation is a function not merely of, to use the advantages were demanded in terms of
is similar to the SCs and who suffer language of the Committee, the SRC population proportions .. It was on this

, .
constitutional directions sought to State is secular but the society has been
principle that polit~cs became a zero-
restrict, if not reduce or eliminate, those both communal and communitarian.
sum game in which every gain for one
advantages by restricting property rights . Under such conditions the possibilities
. community was seen as a loss by
and exclusive privileges. At the same of the dominant sections holding back
another community.
time, the legislations sought to create a others or blocking their life chances
The Constitution of India attempted framework to equalise life chances' for cannot be denied.
to override this principle by making everyone irrespective of considerations So far as such blockages exist, the
equity and equality of opportunity of social affiliation. At least in some State is, and can be made, liable to
rather tl~anparity to be the guiding basis cases, the principle of reverse remove them. The State can be made to
of national life. According to this discrimination was also adopted where fulfil that liability both by political.
constitutional principle, the State's role it seemed that without such reverse. pressures and legal action. On.e has
is not to ensure that all communities discrimination life chances would not reason to believe that the Prime
should be represented in the different be equalised. Minister was led to constitute the
sectors of public life in proportion to Sachar Committee to explore whether
their share in the population but rather It is possible that during the past such blockages existed in the case of
that all communities should have equal sixty years the practices of the State Muslims in view of the persistent
opportunity to develop and advance have not been true to the letter and spirit Muslim complaint that they were not
even though currently they might have of the Constitution due to which the getting a fair deal. Such of the
differential assets and advantages. equality of life chances has not conclusions and recommendations of
materialised for some communities. the Committee that suggest that such
The Constitution recognised even as
Musliins may be one such community. blockages exist should be addressed. At
it procJlaimed equality that communities
It is also possible that certain the same time, the publication of the
(SRCs in the language of the Sachar
communities which have had a greater report cannot be converted into an
Committee's report) have historically
hold over the structure of the State have occasion to relapse back into amindset
had. differential advantages leading up
deliberately blocked life chances for where parity rather than equity and
to the persistence of gross inequalities
certain others. One of the dilemmas of equality of opportunity is made the core
in real life. Up to a point the legislations
passed under the direction of the the Indian society has been that the of public demands. 0
Awards for Outstanding Wome.oi3anchayatLeacJers

the Institute of Social Sciences invitesn<;>rninationsf?r9u~st~llding
wp!1"!nPanchayat Leaders to JecognjseWO!T'7n.~anchayat representatiyes'
.~?~trit)Utionto public life and developmentofth~Jrl?~n~hayats;The~vvardswiU
. b7~res~ntedonthe occasion of women~~~~~!.t~caIEmpo\Ne[.!1"entpay
(~.Ie,~r~liol1sin Delhi on 24Apri'2007.T~e\1~~''!}~?!.20?7celepration~isHll1
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pl~CElinHangalore,Chennai, BhubaneswCiri,~~~~hi Nagar,"Luckn?W,:Kol~ata
...........
a~(tHyderabad. The last date for submission 'ofqQminationsls 30 March 2007.
eontact Dr. Bidyut Mohantyatthelnstitut~.9f\Social SCiencesfbrdetails.
Institute of Social. SCi~be~s

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Community Radio Run by

-Dalit Women
1
. V Balakrishna
far in seven years. Since

EADY... Taking ...
their station do not have a
Cue ... ' One village
license to air the
woman is giving
programmes they take the
instructions from the
recordings to the villages
control room.
and play them in the public
Some other viUage women in the address system and also in '
studio started singing. their group meetings. Since
the Government of India
The programme is recorded, and it
,has taken a decision to
is broadcast.
gi ve licenses to the
This is not a scene in All India community radio stations
Radio, Hyderabad. This is a scene in a through out the country,
'community radio station iIi a remote groups, agriculture. etc. They helped their station will be the first one to
village called Machnoor of these women with financial 'assistance get the license and they can broadcast
Jharasangham MandaI in' Medak from the UNESCO in setting up a the programmes.,
District, a backward area in Andhra studio, equipment like recorders,
'Initially, people were not willing to
Pradesh. Here two Dalit women, one mixers, editing suits etc. An FM
hear our programmes, when they came
Narsamma is from Pastapoor village transmitter is also set up which will
to know how useful they are, they
and the other N arsamma is from cover a radius of 30 km around
started showing interest' says General
Alugolu village, are running a Machnoor and cater signal' to more
Narsamma, who got the title 'General'
Community Radio Station. Since both than 100 villages.
as leader of a children group earlier.
their names are similar, their village
If one woman remains in the station,
names have become their identity. They
the other goes with her UPTR (Ultra 'We have already provided at least
have studied only up to 10th standard
Portab1e'Tape Recorder) to the villages one FM receiver in each village and
and they did not know what is
and records interviews and talks of now we are concentrating on providing
broadcasting and how it is. But now
experts in the villages. The subjects an FM receiver to each of our
they are experts in recording, editing,
vary from women issue~, child community member in all the 75
dubbing, mixing, all the latest
development, health, social problems, villages, as we are going to get license
techniques of broadcasting including
agriculture, pest management, to air the programmes' says Mr Suresh
announcements.
watershed development, drinking water, Kumar, Deputy Director, DDS.
All this happened with the help of Iiutrition, child labour, and all other
issues related to the villages. They are To know about what these Dalit
local NGO called Deccan Development
empowering villages by conducting women are presenting on the
Society (DDS) which is involved in
plays, stories, songs etc. They have Community Radio, one has to log on to
Rural Development Programmes, like
credited 500 hours of recordings so www.ddsindia.com. 0
women empowerment, s~lf help
The author is Editor, Yojana (Telugu), Hyderabad.
55
Mid- Year Economic Review 2006-07
Reforms Must to Keep

Growth Buoyant
o FULLSTOPS in India's role in accelerating economic growth
growth story. Manufacturing with foreign direct investment (FDI)
is resurgent services going buoyancy pushing up net capital inflows
strong, revenue collection . to $ 12.5 billion du~ing April-June as
buoyant, Inflation under compared to $ 7.7 billion during the
, control, exports jumping 37.3 per cent, first quarter of the previous fiscal.
foreign investment flows strong and no E~ports were also strong at $ 69.5
over heating of the economy' billion during April-October.
Simply put, you can get ready to The report has called for caution to
uncork the bubbly to celebrate un- ensure that macroeconomic stability as
precedented economic growth during this was key to promoting investment
2006-07 though agriculture is not and growth. "Indeed there is need for
keeping pace with,the overall buoyancy. continuous caution in maintaining
To step up the gas further, the macroeconomic stability to support the
government now plants to prune tax pick up in investment and growth on an
exemptions, reforms the regulatory enduring basis. This is particularly so In
system for pension, insurance sectors; the current conjuncture with large
and revamp delivery of subsidies by global macroeconornic imbalances and
introducing food stamps and smart uncertainty in currency markets," the
cards. review said.
FM's Review
The pointers frbm the review-
calls for reforms The finance ministry's and mid-year
tabled in Parliament-for the 2007
review of the economy calls for reforms
in Labour JAws, in labour laws, deregulation of mining Budget include reforms in labour laws,
deregulating of mining and regulatory
deregulation of and steps to boos! agriculture. Irritants
like lack of adequate power generation reforms for 'the pension as well as
Mining & steps linger, but the big sectors projects the insurance sectors. Adequate emphasis
to boost economy racing in the right direction. has been placed to stress on the ~needto
open up mining further and encourage
Agriculture The external sector has played a key market forces to usher in more
56
momentum into the financial sector. In reduction and monetary tightening to the buoyant stock market and stable
the case of mining, lh~ 'report .brin'g inflation under control. conditions in.the exchange rate
market of the rupee, indicate that
emphasises on the unfinished agenda of Furthermore" the lI}oderation of
there need not. be a cause for
0
further reforms. . ',; ,internatio'nal • ptices" of ,crude'

immediate worty, the report
Part of the optim,ism i~ based on petroleum has also tJroughtsome,
. ".
, '' ,
,. ~indicat~d.
the fact that roblist economic' growth, " n~liei On the expectations front:' th~' "
The review pointed out that a large'
with GDP growth touching'9.1 per report,' said.
part 'of the current problems of
cent was based -on resurgence in The review highlighted that though inflation is induced by commodity-
manufacturing which grew by 10.9 it seems unlikely that the current specific' supply problems related to
per cent and the vibrant services deficit ,is a cause for alarlI}; there is 'products 's~fh as wheat and pulses.
sector that expanded by '10:7 per need for continuous caution' in "A durable solution to the price rise
cent. maintaining macroeconomic stability problems has to be found in
On overheating, the finance to support the pick up in investment increasing yields and domestic output
ministry reels that the concerns and growth on an enduring basis. of such products. Simultaneously,
expressed by some sections waS due "This is particularly so in the current ma~roeconomic policy response has
to a combination of high economic conjuncture with large global to be prospective rather than
growth and slow creeping up of macroeconomic imbalances and retrospective", the review said.
inflation in manufactured products. "If investment continues to be
The review has, however, clearly, buoyant and efficiency improves, the
rul~d out any need for alatm,~t this. lilbour ,reforms to push growth problem of, overheating may tum out
state. The on'ly area of c~n~~rn • Tax exemptions, to be primed to be less real and more imaginary,"
highlighted by the report is the said the report. Attributing rising
• Efu-lyse~~gup~find~pendent
disappointing performance ofihe 'inflation to supply side constraints
regulatory; system$ ..for.insl:!rance,
agricultural sector which grew by just besides rapid rise inctedit growth
p~nsionslX:tors,
2.6 per cent in the first sixmontbs of and money supply, finance minister
• ,Fine-:tunirig ofsuQsidies
current financial year. The minimum P Chidambaram said the government
support price (MSP) mechanism has • R~form?fthe r~~~lat9ry systems
f9r mining sector" will take pre-emptive action to
not delivered the desired results and contain rising prices.
faired to discover the market price"
"We have to be ahe,ad of
the finance ministry feels. "There is uncertainty in currency markets," It
developments and take pre-emptive
a need for a clear separation of price said.
action, rather than fall back and take
support to farmers and procurement The ,Committee on Fuller Capital corrective action." Chidambaram said it
by the states, on the one hand and Account Convertibility (2006) was too early to say whether
subsidy to 'the poor citizens on the
indic'ated that a current account inflationary expectations have come
other." deficit to GDP ratio of 3 per cent down.
On infrastructure, the finance could be comfortably financed and
The wholesale prices-based annual'
ministry's view is that users should need for' policy action would arise if
inflation rate declined to 5.16 per cent
pay for services. Projecting the ratio rises substantiaIfy above 3
for the week ended Decemoer 2 from
investment need for the 11th five year per cent.
530 per cent and 5.45 per cent in the
plan period at $ 320 billion, the
. The Plamiing Commission., in the two previous weeks, .following a
review, has cited shortage of
Approach Paper ,to Eleventh Five reducation in prices, ()f petrol and disesl.
electridty,and water supply as key
Year Plan, appears to confirm this Inflation' accelerted from 4.1 per
areas of concern. diagnosis, the report said. Also the cent at end-March 2006 to 5.5 per
Faced with some upward pressure changing 'composition of 'demand, cent on June 17 and again on 18
on inflation, the ,government and the which indicates addition to November. 0
RBI have already initiated measures production capacity to support a
such as supply management, duty higher growth rate of the economy, (Compiled oy Editorial Team, Yojana.)
57
"
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w
58
Harnessing Collective Thinking. Power

.Interview with' M S Swaminathan
suicides - why is it happening, why responsible bib-technology which

is it persisting, why is it not going will help to understand both ri~k and
down, why has itgone.down in some benefits in a Very objective manner.
areas and not in other places, wbat Three years back a committee which
are the reasons, how to deal with it I chaired recommended a national
and so on. bio-technology and regulatory
ADS: Yojana hqs been a very important authority which could .be an
source of both information and also autonomous body which will inspire
policy analysis and policy direction and public confidence; media confidence,
I hope, as the word Yojana reminds us, political confidence,. professional
it is very important for us now to give confidence. The sooner we have a
our own thinking to our own problems, mechanism' the better, otherwise we
ADS: There was a lot of euphoria cif the
and not be carried away by what others have to think about fourdiffere~t
green revolution, people thought, our
say, what others think. We should apply issues. One, is the safety of the'
production problems are solved, so
our minds to our own problems; our environment, and then the safety of
investment on irrigation, investment on
own' people will find solutions, local consumer. What we eat should not
extension, investments on research
solutions and Yojana must emphasise cause us harm. Then safety of any
everything went down and we are
the need for harn.essing the .collective 'new problem that arises, like new
reaping the cost of those wrong
thinking power of our country through diseases what we called bio security
decisions.
the effective use of Panchayat Raj and finally trade security. The recent
Institutions. concern particularly in Haryana was
more from traders than environmentalist.
Traders felt that if European countries
know that we have genetically modified
rice, they will not import from us. At the
moment we are exporting both
ADS: Very important. In a country basmatiand non-bas mati rice about 4
where 70 per cent of the people are ADS: There are concerns and to 5 million tonnes a very large
in agriculture, it is high time, we gave misapprehensions some of them amount we export. Today, Europe
importance to agriculture and valid, and some of them inadequate' does not permit to export. So in my
therefore, Yojana as an authentic knowledge what is important for us is report I have mentioned we should
body, can bring ab,out information, to develop a mechanism, liberated look at trade security, we shall look
for example, even suicides. Farmers' mechanism which will promote at bio safety and bio security we
Prof M S Swaminathan is Chairman, National Commission on Farmers. The interviewer is I. Vijayan, Editor, Yojana (Tamil), Chennai,
YO.J~A February 2007 59

should environment safety about the In our country we cannot force a farmer.
consumers the man who eats the There are 150 million farming families
same. So.all these matters. need to be all making their own decisions because
analyzed carefully by a professional the land is individually owned, it is not .
body. Even the Hon'b1e Supreme owned by the Government. Therefore,
Court of India have recently we can mislead the farmer may be for Ans: Talking about the dry farming areas,
expressed our concern about the one year, but second year you cannot . say in Tamil Nadu, there is a rain for a .
regulatory . mechanism. As I said mislead. So farmer grows a crop with year the next year there is no rain, or
, "
objl?ctive mechanism is one, which the hope of net income per hectare, not there might be heavy.rain resulting in
will weigh the risk carefully which by net yield, if he has got higher income
a
flood. As result the farmer might not
have a good yield. In addition he has to
will also weigh the benefit carefully he will go for that and that's why more
take loan to buy seed. In view of the
and then come to a conclusion. income per drop of water movement is
above he is given 4 to 5 years time to
being started on June 1, 2007. It repay his crop loan. When the World
'Qnes:/:What is genltral, the emphasises on how to increase the Bank gives 40 years time to repay the
'llPprehell$ion l;)ftheo~famte,rs'l' income for farmers, because today loan taken by our country, how can one
farming has become uneconomic. And expect a farmer to repay his dues within
Ans: Ordinary farmer wants income extreme steps are suicide of the farmers. a year or one season with poor yield or
security and crops security, he doesn't Therefore we must look at the harvest.
care whether the variety he grows is economics of farming. We should look
hybrid or something which came from at the income of the farmer in fact the
genetic modifications. He looks at the national commission on farmers
product and grows it. If he grows it for recommended agricultural growth
one year and doesn't getmore yield or should be given by the growth rate in Ans: Yes. The Commission has
if the crop is not more resis~t or if the . farmers income and not just production recommended to reduce the ,crop loan
quality is not good he will not next year. alone. from 7 to 4 per cent. 0
'~'E"." verYfiv~.~ute&:~Iqdi8.n
... .*....
•.•........ . frQ.ln., '. CQ ...•jID.......Pl~ ...ca.'.ti\) 'n s...•..l ......-;~.l....li
...•.
X .' pregnancy an,8 chij~birthr . '.'
'\lP tQ approxi~atel~ 1.~',OOOW(l'
;deaths perfyear',:l!hese.ateilhe~dings
the latestrepot1\by 1JNIC~ onmatern
health in llidia./ ~ .•. +. ' ,.
""0- •
~,
India'sMat~maf
' - .- ,~",
Mo~alityJ£itio
'>.'_ ~'i"<,,:';::. -:." - ,.,,;
~) ha}been,seen;tobetashf~as\~.
maternal death~per'J, live
[lbout'fouritime;.bighe.r th~.
POPUlation:;PoJic~(NlfJ?),+.. g~alp~:~"
per 1,()O,~ Iive'~~irthl; &f • .
• !i
"':,:'
A~rding'
__ .' -
to.the
" --:, ' ,',~:,-
~msl:a
,-::~'w:' y- ._,0"
Madhya P1;ade~~;and,. .!Prid

MMRisa~bigh' as~OO{}I:.~
Assam. .,~ihar~ G~jar;i; ..J;lary~a
kamatalm;OriS~a, ~jastlan~!1d l'!e~
Bengal it~~ceeijs 4°ope~fl,~.~~iy
l>irths:lt ~as.'fo;md .iliatover th~las('Siit'.~
tear!lthe~ehas been "np Signifi~:tnt:~;:
r,eduetion"in theMMR. ...~../s::.. "0
t:- :,~:>-
"The MMR in India of\378materhal'~
-::":, '-:,~::,:. _ 'j::' '_::~:.' '.~t~:
(leaths per,.i,oO,!)OOliveB.ft.ths.ili:l~;"t
/ - ". - - 'k •.). -~ k:;~
60 YOJANA February ~007

~ '" /4' ~~: '~ ~ '<. ~' <X P~ <- 0; "' ¥ ~ .j;::
" :" ~" :, '" ISSUES'
\N"omen" and 'Pla~ns

Devaki Jain
"NE OF the first countries to the issues that were raised by the fIrst
make serious efforts to meeting of the Steering Committee
bring in women's reflected the gains and the inadequacies
viewpoints and perspective of the location of women in the plans
on development planning over the last four plans. There was a
critical appraisal., The critical appraisal
was India. was strengthened by the mid-term
While in the fIrst few plans, the issue appraisal of the 10th plan on the subject
addressed was din:cted towards, namely Chapter 4, which actually
"redeveloping", the / country, revealed clues for the Steering
strengthenillg-its capacity to produce Committee to take note of.
, and be self suffiCient By the time of the Even if planning for women is
6th plan the momentum and the interest changed to planning with women, there
in bringing a speCifIc concern namely, are many dilemmas and challenges in
dealing with women, simulated the building a chapter into any fIve year
Planmng Commission at that time, to plan which aims to include women and
bring a chapter on women. At this time, Children as a special category within
Unless the entire since the major interest in India was, the planning process.
towards employing the unemployed, the
range of chapter was called "Women's The Steering Committee meeting
facilitators of Employment" and not a chapter on mentioned above revealed
challenges, dilemmas and problems of
the
, Women and Development or Gender as
women's it is now called. bringing women as an identity into
public policy. The problems are not
",empowerment There is a message in that attempt as merely the fact that the, category )Vomen
it includes women in an important
come together, the perspective of planning, nam'ely
is not homogeneous - and that they are
scattered across class, caste, religion,
new wagon will employment, which still is a burning
issue for women, who are in the lower
location, etc., and thereby cannot be
bundled into one identity. The problem
"move along incoqle deciles, in India. is that they are engaged in every aspect
of the political economy - every sector,
without women In preparIng the 'II th plan, many of
, ~-
1ibe 'auth?r is a noted development economist.
61
,YOJANA February 2007

,( every programme either as subjects or

objects and therefore to capture their
• Of all agricultural workers, 99.4 per increase in pressure of poverty is
cent work in the informal sector.' experienced by women to such a great
presence in one chapter trivializes
• 53 per cent of all male workers are extent that they are now doing short
their position in the Indian political
in agriculture term and long term migration with all
economy.
the hardships of migrati9n. Recent
In fact, in this particular exercise of • 75 per cent of all female workers are stories how girls are married quickly
engaging with women in planning or in agriculture
even at the age of 14 or 15 since
designing or drawing up a five year contract laborers in other states want
• 85 per cent of all rural female
-plan, the women identity is legitimate workers are in agriculture couples is a particular example but there
and necessary. It need liot be broken up is female adult migration in large
into conventional strata, just as tli.edalit For women this percentage has numbers.
or the minority identity has the value in declined iess than four points since
the whole, apart from in the parts. 1972-73. An estimated 20% of rural Another example in from tiny
households are de facto female- . enterprise; Millions of women are what
Attempts to do a chapter on women
headed due to widowhood and . can be called owners of tiny enterprise,
in the five year plan, tend to get driven
desertion, or because of male out- - which are being gobbled up by the new
by what is 'called the Ministry of
migration. These women are often MART mode.
Women and Child, formerly a
managing agriculture and providing
department, which has the historical It is well known that women are
family subsistence with little male
evolution of being a funding agency amongst the poorest of the poor. The
assistance, but without titles to or
with a plethora of schemes. These majority of those who are HIV AIDS
control over the land they are
schemes range from attempts to victims, most malnourished and we also
cultivating.
improve the economic capacity of know that the infant mortaIity rate has
women to the usual social amenities and Yet as it is shown in the table below been increasing and so too maternal
services, but bundles specially for they are the majority of the workers mortality in the last few years while the
women or a separate fund kept for in many critical processes or steps in economy is growing at a fast -rate.
women within allocation called the agriculture~
component plan. Thus, the women Simultaneously, there are immense
Share of WOOlen in Agricultural changes in the institutional
chapter further marginalises women,
Operations I
arrangements being made for delivery
which really makes women into basket
case. Activity of devel,opment especially to the less
Involvement
privileged section of society. Central
The difficulties with such an (Percentage)
schemes are being gradually liquefied
approach are-
and an increasing percentage of funds
The schemes meant for women don't are being given as untied funds at the
recognize the central role that women local level. Gram panchayats are being'
may be playing or the marginalization empowered and while women may have
they may be experiencing i'n sectors a quota of seats in them, unless the
where they both earn their livelihood as entire range of facilitators of women's
well as provide to the domestic empowerment from government
products. machineries for women such as.
Department of Women. and Child,
For example in agriculture ; Rural
Women Study Centers, Women's
women workers in agriculture are
For example women are deeply Movement, the Central Social Welfare
linked to informal work status on the
engaged as labour in con~truction and Board, come together to strengthen
one hand and with marginal worker
construction is one of the major source capacity at the local level for women to
status on the other.
of employment next to agriculture. deal with their interest and ideas for
• 64 per cent of the total informal Since their skills are not upgraded to development, the new wagon will move
sector workforce depends on respond to the current construction along without women. \
agriculture. needs they are again left in the lowest
Thus, it is much better that instead
• 38 per cent of all agricultural paid most vulnerable positions.
of trying to assess the current schemes
workers are women. The increasing inequality and the operating on behalf of poor women and
62
the allocation of fund for them or even Third Section, The action where do • We should pick up on the ideas that
reserving funds for women in sectors, we go? Women's footprints on the come from and for NREG Scheme.
a presentation is made which is more Indian development plan - how do For e.g., Himachal Pradesh had an.
like mapping, seeing the Indian map women want to receive development idea that they would want to have a
with the faces of women, where are they assistance. How do they want to design building for the anganwadi and for
located in the productive sectors, where development planning and children toilets. This could be
are they being immiserised,what are the implementation? Here, we could draw funded as an NREG Scheme and it
kinds of trends that are emerging as a ideas from regions. would immediately benefIt women.
resul.t of some of the matro-policy .We should visualise issues in relation
We are fortunate that we have a mid-
initiatives that are being taken, where to minorities and dalits and find
term appraisal chapter which tells us
. are livelihood~ getting increased, where ways in which their concerns are
that all is not well with the strategies
lost. expressed. Thus, there could, be
that we have followed in bringing more
commissions which' focus on
Thus, the women chapter further attention to women's role in planning
discrimination of women, including
marginalizes women and the women's for development. Thus, we can use the
agencies set up for SCs & STs or.
ministry is the basket; which really MTA's own commentary, as it is
minorities. Just as the Commission
makes women into basket cases. government's own assessment of the
on unorganized labor, we should
Nothing exposes the disjunction past.
have a Commission .on the impact of
between the percentage growth and the What we need to do this time is to discrimination or we bring it in a
ground level, as well as the profile of visiblise' women, visualise them very big issue into the
or the face of the less privileged classes through; Administrative. Reforms
be it by class, caste or minority. So, it Commission.
is important to do a data map from • data, through the knowledge that
they have provided, through the • In strategies, we need to have
which the rest of the plan can derive,
difficulties of institutional support working groups within steering
with response, rather' than try to draw
for them. committees and those working
more money to be delivered through
groups would be to discuss how
more schemes.
• regarding funds, the funds should be women matter.
Thl~ Chapters could be designed as to provide enabling hands to _let
There is much to be learnt from the
follows: women be there .own agents. Thus,
past experience, on what NOT to do.
the women's machinery should
FiIrst Section, which gives the Further, there is enormous value added
become only an advocacy tool.
historical evolution of ideas for if a plan takes into consideration the
integrating women in development • Women's organizations and Women perspectives provided by the location of
planning at both the national and some Study Centers would provide the social groups like women, minorities
state level experiences. enabling hands but there is no dalits into their full consideration,
scheme at all to support themJ instead of seeing them as victims, or
. We could mention how the fIrst time
patients as Prof Amartya Sen has sajd
women were brought into the sixth plan,
The idea of doing gender budgeting in one of his lectures, I quote:
it was a chapter on women's
and child budgeting should be
employment and the contribution dropped as indeed this is in some "We need a vision of mankind not as
women wer~ making in the different sense plugging into what is on and _ patients whose interests have to pe
sectors of. the economy and thereby what is on is certainly not been looked after, but as agents who can da
drew attention to the needs to strengthen enabling. effective things-both individually and
women's livelihoods and women as jointly. We also have to ga beyond the
worker, not only a target of social Instead of that we cauld ga into what role .of human beings specifica11y as
welfare. we can be called Fiscal Palicy 'cansumers' or as 'peaple with needs',
advise. Should government raise and consider, more braadly, their
S~~condSection, which gives
money through sale of arrack, or general role as agents .of change who
Mapping of data other sources, by pointing aut that can - given the oppartunity - think,
India's women with special reference . . liquor and arrack in the village has assess, evaluate, resolve, inspire,
to those in poverty. The face of the absalutely hurt the well being of agitate, arid thraugh'these means,
Indian women. families. reshape the warld". 0

Do You Know?
What is the Budget ?
B
udget is also called the Annual parliamentary approval for payment What are Demand for. Grants ?
Financial Statement. This is , from the Public Account is not required.
the main budget document. . This the form in which estimates of
Under article 112 of the Constitution, What is Revenu~ Budget? expenditure included in the Annual
Financial Statementand required to be
a statement of estimated.receipts and This consists of the revenue receipts
voted in the Lok Sabha are submitted.
expenditure of the government of of the government (tax revenues and
Generally one demand for grant is
India has to be laid before Parliament other revenues)and the expendituremet
presented in respect of each ministry
for every financialyear. This statement from these revenues. Tax revenues
or department. However for large
shows the receipts and payments of comprise proceeds of taxes and other
ministries and departments more than
Government under the three parts in duties levied by the Union. Other
one demand is presented.
which Government" accounts are revenues are receipts of the government
'kept: (1) Consolidated Fund mainly consisting of ,interest and What is Finance Bill?
(2) Contingency Fund and (3) Public dividend on investments made by
The proposals of government for
Account. government fees lUldreceipts for other
levy of new taxes, modification of the
services rendered by the government.
What is Consolidated Fund,? Revenue Expenditureis expenditure for existing tax structure beyond the
period approved by Parliament are
All revenues by the government, the normal running of government
submitted to Parliament through' this
loans raised by it, and also itneceipts departments and various services,
bill.
from recoveries of loans granted by it;: , interest charges on debt incurred by
form the Consolidated Fund. All government, subsidies and so on. what is Performance Bndget?
expenditure of the government is Broadly speakiI;lg,expenditure which
This is the budget of the ministry
incurred from the Consolidated Fund does not result in the creation of assets
in terms of functions, programmes
and no amount can be withdrawnfrom is treated as revenue expenditure. All
and activities and gives appraisal,
the Fund without authorisation from grants given to state governments and
reports separately in respect of
Parliament. other parties are also treated as revenue
major central sector .projectsl
expenditure even though. some of the
What is Contingency Fund? programmes estimated to cost
grants may be for creation of assets.
Rs 100 crore or more.
As the name suggests this funds is
What is CapiW Budget? '
placed at the disposal of the President What are Appropriation BiDs?
to enable the government to meet This consi~tsof capital receipts and
After the Demands for Grants are
urgent unforeseen. expenditure payments. It also incorporates
voted by the Lok Sabha, Parliament's
pending autno:risationfrom transactions in the Public Account.
approval to the wit4drawal from the
Parliament Capital receipts are loans raised by
Consolidated Fund of the amounts so
government from the public which are
What is Public Account? voted and the amount to meet the
called market loans, borrowings by
expenditure charged on the
Besides the normal receipts and government from Reserve Bank and Consolidated Fund is sought through
expenditure of the government which other parties through sale of Treasury the Appropriation bill.
relates to the Consolidated Fund, Bills, loans received from foreign
certain other transactions entel,' bodies and governments and reCoveries What the Budget Deficit?
government acc.ounts in respect of of loans granted by Central government The difference between revenue ,
which government acts more as a to state and Union territory receipts plus non-debt capital receipts
banker, for example, transactions governments and other parties.
on one side and total expenditure
relating to provident funds, small Capital payments consists of capital including loans, net of repayments, on
savings collections, other deposits, expenditure Onacquisitionof assets like the other side. In othl~rwprds, this is
etc. The money thus received is kept land, buildings, machinery, equipment, the budget deficit plus borrowings
in the Public Account. As the money, as also investments in shares, loans and and other liabilities.
generally speaking, does not belong to advancesgranted by centralgovernment
government and h~ to be paid back to state and union, territory What is PrimaryDetic1t ?
some time or the other to the persons governments, g0'femment. pompanies, This is fiscal deficiturlnu$ interest
and authorities who deposited it, corporations and,othel,'p~e~. : payments. Q
64
.',' YOJA.,NA;February-;W07
Do You Know? Kinds of Deficits

'he Union government will be capital receipts. These include domestic difference between reve'nue
l paying as much as Rs. 1.34

. . lakli crore as int~rest during
2005-06. An amount large enough to
and external borrowings, proceeds of
disinvestment, recovery of loans given
by the Union government, etc.
expenditure and revenue receipts is
revenue deficit. It means the
government is unable to meet its
build 27,00,000 medium-size expenses from recurring sources of .
Is deficit financing necessary ?
housecosting Rs. 5 lakh each, or 500 income.
new schools in each district of the . States often fail to generate tax
The Fiscal Responsibility and
~ountlY. Unfortunately,funds of such . revenue which is sufficient enough to
Budget Management Act, 2003 has
magnitude go down the drain in the take care of the expenses of the state,
laid down the roadmap for a gradual
form of interest payment each year. especially a welfare state. Deficit
reduction and finally, elimination of
Interest payment is nothing but a financing allows the state to
revenue deficit by 2008-09. This will
reflectionof debts accumulated by the undertake activities which, otherwise,
entail raising of revenue and,
govemme!lt .over the years for would be beyond its financial
simultaneously, having some checks
bridgl;ng deficit. Successive finance capacity.
on expenses relating to subsidies,
ministers have tried, without success, The concept, it may be recalled, was salary and pensi0t;! bills, interest
to .bridge the growing revenue- popularised by noted British economist payments, etc. After all, the
expenditure chasm. Finance miniter P. JM Keynes with the aim of pumping a government ought to live within its
Chidambaram too will endeavour to depressed economy.The basic intention means.
. contain deficit in IJudgetfor 2007-08 behind deficit fimincing is to provide
at various kinds of deficits and their Significance of fiscal deficit ?
the necessary impetus to eco,nomic
implicationsfor the economy; growth by artificial means. The government's first task is to
Unfortunately,the extent to which India bridge revenue deficit, Second, it .
. What is defidt ?
has been practising deficit financing has must generate the resources for
De{icit il>bal>icallythe difference gone way beyond what co~ld possibly investing in projects and schemes of
between expenditure and receiptl>. have been contemplated by Lord .capital nature. This may include
In public finance, it means the Keynes. .equity contribution to public sector
government il>I>pendingmore than undertakings, loans for public
According to the revise'd estimates
what it is earning. Government enterprises and investment in
for 2004-05, while the Plan
expenditure and revenue can be split infrastructure sector projects ..These
expenditure was Rs 1.37 lakh ,crore
into capital and revenue. Capital investments yield direct as well as
(budget estimates for 2005-06 put it
expenditure generally includes those' indIrect dividends.
at 1.43 lakh crore), the interest
expenses which result in creation of
payment on loans borrowed to further The government b()rrowsmoney to
assets. Revenue expenditure is
the ends of deficit financing was Rs. bridge the revenue deficit and fund
primarily that which does not result
1.26 lakh crore (budget estimates for .developmental projects and schemes.
in asset creation..--:.Hkeinterest
2005-06 put it at 1.34 lakhcrore). It The government, as sovereign,
payments, salari~s, subsidies, etc.
means India is spending nearly the borrows. at competitive rates from
Eg., I~xpenditureon construction of
same amount on interest payments. as various sources which include the
a fly over will be capital
on development. Tl,1isalso explains Reserve Bank of India, commercial
expenditure, while the salary being
the alarming limi~s to .which the banks, general public, external
paid to government officials .
concept of-deficit financing has been borrowings etc. The total borrowings
supervising the construction will be
stretched. used to bridge the receipt-expenditure
revenue expenditure. .
gap is called fisel deficit. This is
Should revenue deficit be . measured as a percentage of GDP as
Similarly, on the receipts side,
eliminated ? it may not be appropriate to compare
whatever the government receives as
taxes is revenue receipt. Receipts not Tax is the most important source of borrowings of different years in
of a recurriging nature are generally revenue for a government. The absolute terms. 0

•
Cycle Rickshaws In Delhi
Geetam Tiwari
'D." ..~.....t. .•Emaximum

Ull IS known to h.av.e th.e
number
survive. Often the rickshaws are owned
of
by contractors who demand fixed rent
•.• motorized' vehicles from the pullers. They do not care about
: ,compared to' any other the technology or the environment in
, Indian city. However, the which the rickshaw puller has to
number of cycle rickshaws and other . operate: However, this is only one side.
motorised-modes has been increasing of the exploitation faced. The
over the years. Despite increasing authorities is the cause for much more
income levels of the resident population serious concern.
and growth in number of cars and
scooters there seems to be enough Rickshaws are often viewed as cause
demand for bicycles and cycle for congestion and vehicles which
rickshaws and thelas. Given the socio- violate traffic regulations and cause'
economic mix of the city population chaos on the toad. However, rickshaws
and spatial pattern, this demand is and other non motorised vehicles in
expected to continue in future also. In Delhi as well as in other cities have
fact, there is a strong case to develop peen completely ignored in traffic
Rickshaws have policies and infrastructure which planning and road designs. The road
a positive role in enables smooth movement of cycle network is .used by at least seven
rickshaws because this is a zero categories of motorized and non-
modern. transport emissiqn vehicle, and can serve' as a motorised vehicles.
feeder mode to bus transport and metro
system when. rail. Since primarily bicycles and other
mobility and non-motorized vehicles use the left side
Employment generation is the other of the road, buses are unable to use the
clean strong argument in favour of cycle designated bus lanes and are forced to .
rickshaws. It provides opportunity to stop in the middle lane at bus stops.
environment are the unskilled migrant population for an This disrupts the smooth flow of traffic
the basic honest living. Several case studies have in all lanes and makes bicycling, use of
ricks1)aws and other non motorised
documented the exploitive conditions
concerns of all under which a rickshaw puller has to modes mOre hazardous. Motorized
The author is with Indian Institute of Technology, Delhi.

traffic does not use the curbside lane The current policies regarding cycle brought to 20-30 km/h with the help
even when. bicycle and rickshaw rickshaws and other non motorized of traffic calming measures.
densities are low. Providing a separate vehicles are restrictive and are based on
bicycle and rickshaw track would make the false notion that efficient transport Traffic movement in the old and
more space available for motorized system does not have any place for historical parts of Delhi which includes
modes and bicycling less hazardous. these vehicles. Traffic management Chandni Chowk area should be planned
Clearl~{, it is the lack of facilities for experts and traffic police have proposed exclusively for rickshaw movement to
rickshaws and bicycles and other non area and time restrictions on the ensure clean and safe mobility. Other
motorized modes which results in movement of rickshaws in Delhi. The arterial roads should be redesigned to
congestion and chaos and not the number of rickshaws tpat can be include parking for rickshaws and 2.5m
presence of these vehicles III registered in the city is fixed by the wide separate lane. Capacity of MV
themselves. government (99,000) in order to restrict lanes can be increased by 50 per cent
the number 'of rickshaws. The if separate lanes for rickshaws and
Rickshaws and modern transport registration procedure requires the bicycles are created. This would also
owner to have a valid ration card. result in safe feeder infrastructure for
Rickshaw moves at an average Rickshaws are allowed to be registered metro and Bus Rapid. Transit System
speed of 12 km/h. For trips which are only during the stipulated time period planned for the city. Detailed designs
less then 3 km in length, rickshaw twice a year. These restrictive policies for road cross section and intersections
provides .an attractive option must be viewed in the context of the have been prepared f0t: Delhi. Which
compared to bus or metro system. It present environment of globalized shows inclusion of separate service lane'
has an important role as a .feeder economy where the highest level of and footpath. Service lane includes
system to the metro or other mass policy makers talk about reducing "services" such as parking for cycle
transit options like Bus Rapid Transit goveniment controls to enable free rickshaws and other non motorised
System. For feeder trips which are market economy to operate! Should vehicles also, and designed spaces fgr
less than 1 km, rickshaw can serve as these policies not apply to the bicycle repair, shoe repair and other
a feeder mode. The other competing operations of cycle rickshaws and other hawkers.
modes like bus or three wheelers are non motorized vehicles as well?
not as attractive because they have Rickshaws have a positive role in
higher emissions. Nearly' 50% of the Basic Infrastructure modem transport system when mobility
trips in any city are less than 5km and clean environment are the basic
long, including megacities like Delhi A well functioning road concerns of all. However poor
or Mumbai. Rickshaw continues to infrastructure must fulfill the understanding of their requirements and
I
offer a viable mode of transport. requirements of all road users. lack of physical facilities for these
modes creates congestion and
Number of bicycles and cycle Pedestrians, bicyclists and non- inconvenience for all other vehicles.
rickshaws in the city are estimated to be motorised. rickshaws are the most Often the government promotes
1.5 million and 110,000-300,000 critical elements in mixed traffic. A restrictive policies for the movement of .
respectively. In addition to bicycles, longer lasting safe road-traffic systeni these vehicles. It is possible- to design
non-motorised rickshaws are used for primarily requires two design roads and parking facilities for them in
delivery of goods like furniture, principles: cities which will facilitate movement of
refrigerators, washing machines etc. other'vehicles also.
Semi-skilled workers, carpenters, • Arterial roads which are more than'
masons, plumbers, posunen, and courier 30 m right of way (ROW) must have Rickshaw friendly infrastructure will
services use bicycles. Therefore, the physically segregated bicycle/non- facilitate the use of public transport
demand for bicycles and rickshaw exists motorised vehicles (NMV) path, systems like metro and Bus Rapid
in large numbers at present and is likely which cannot be used by motorised Transit systems by improving the
to exist in the future also. This situation vehicles (especially motorised two _accessibility to these systems. Such
is not explicitly reCOgnised in policy wheelers). policies will also help in enhancing the
documents and very little attention is positive role that rickshaws and non
given to improving the facilities for • Average speeds onroads which have motorized vehicles can play in city
non-motorised modes. less than 30 m ROW must be transport system. 0

~,
Religious Shrines and

Rural Employment
DC Bakshi
UR RELIGIOUS heritage Let us face the stark reality viz. in

is unique. It is centuries terms of a holistic safety cover for the
old. Village folks live in shrines, the sanctum sanctorum and the
harmony despite the visiting devotees. Majority of the
diversity in religion and complexes are unsafe. In an internal
caste, practicing individual faiths and security review meeting held in Delhi
deriving spiritual strength from locall attended by State Chief Secretaries, it
nearby shrines, The basic fact is that the was mandated "We have to be on total
landscape is incomplete without a alert, identify vital installations, prepare
nearby place of worship - big or small. plans to strengthen the intelligence
network, religious processions and
Annual fairs at these shrines are the yatras, also have been identified for'
extension of this ethos. Economic special security measure."
activity generated through this medium
is sizeable. They are reservoirs of According to a media report, the
entrepreneurship. Being virtual renowned Somnath temple in Gujarat is
fountainheads of rural economy, a lot to be provided additional security cover.
Security many people get employment in this un- . Admi~tedly, this is a step in the right
organised sector during the season. direction since Gujilrat has already
cover for the witnessed a gruesome telTorist attack at
shrines can Security cover for the shrines on Akshardham (Gandhi Nagar). Anyone
'self-sustained' basis, which has of late who has visited Somnath would agree
provide jobs assumed great importance can provide that it continues to be a soft target. It is
jobs to millions in the rural areas. sUlTounded by sea. The mighty waves
to millions in Ample help from the state hit the peripatetic walls from three
the rural administration and rural development sides. A stray bullet from an ordinary
agencies can be made available in this sea-dhow by a band of rogue-telTorists
areas regard. can cause commotion. It can bring
The author retired from IAF and is presently Managing Editor, 'Air Power' JournaL

down nation's prestige beyond

limits. In addition, like any other
religious hub, Somnath has its
share of vagrants thronging at the
entrance, seeking alms and selling
petty goods. Such conglomerates
are an 'ideal repository for the
undesirable characters. They pose
a serious security hazard.
Why only Somnath? Are the

neighbouring shrines less
important? The fact is that
Somnath is just, one 'amongst the
many-equally venerated places of
worship in this region. Within the
shrines, the devotee.s throng in
large numbers for darshan; entry/
exit points are literally choked.
They are manned by
inexperienced, low-paid staff.
Frequent stampedes and petty
thefts are a common feature. Rural Tourism is the talk of the town. shrines management board.
The rural poverty quotient in India Says the Union Minister of Tourism & • Raise "battalions" of village/town
is appalling dismal. According to a lady Culture, Smt. Ambika Soni: "Over the defence councils (on the lines of
District Collector in the tribal belt; a years, industrialization and J&K) to administer security cover
village-household's total assets on an development have become increasingly to the shrines: This can be a great
average (utensils, beds, clothes and urban-centric. The rural areas are source for employment.
petty cash) are less than Rs 250. suffering from the problems of falling
incomes and lesser job-opportunities". • Improve intelligence network at
Tpanks to the' efforts of Rural grassroots levels. In Arunachal,
According to her, Bharat Nirman
Development network at the Centre and every village has a "Gaon-Boodha"
Yojana is likely to playa key role to
state/district, various schemes launched (he is a paid employ~e) who
ameliorate the cause of rural folks-.
by the government are gradually represents the district's/state's
bringing in the desired changes, not Militancy of late, has become hydra- authority. He provides relevant
only the mindset of people, but also in headed. We need to educate our people inputs to district administration and
terms of facilitating them for better to become vigilant. The local shrines also keeps a watch on undesirable
living. need protection. Since, the militancy is activity. Yet another source of
no more an urban phenomenon; it is employment.
NREGS (National Rural
time we extend the long arm of security
Employment Guarantee Scheme) • In metro cities, we see school
consciousness to the interiors.
,recently launched is the ultimate in the children manning the traffic
chain of events. VIrtual employment has ' Religious shrines cal? be protected crossings. How about. bringing
reached at the doorsteps of villagers. by: young and the needy in rural areas
. They do not have to migrate to cities; in the folds of security network for
far away from their hearths in search of • Streamlining the administrative
shrines.
job. The psychological impact of machinery of the shrines with active
NREGS is highly constructive. The assistance from state administration. In conclusion, rural employmeJ;1t and
word "employment" has found meaning Security aspects need to be religious tourism have immense
in their lives. Not only in the cities, emphasised. Standard procedures potential for integration. The
employment is available in the rural belt and practices be framed and strictly coordinates of the matrix are
as well. followed. Let its onus be fixed on favourable, they .onl~ need a push. 0

•
Rural Finance In India
Gursharan Singh Kainth
NDIA IS basically Rural India needs of the rural people and framed
and Rural .India virtually policies conduciVe for the flow of
includes the cultivators, the' institutional credit for the farm sector.
village craftsmen' and There 'has been substantial
agricultural laborers. One of the improvement in the flow of
serious and unrelenting problems faced institutional credit In India for the
by the Indian farmers' .house~olds has past three decades. But agricultural
been indebtedness. Despite substantial credit started growing only after bank
improvement in agricultural output and nationalization and has increased
distribution of credit, still majority of manifold since then. The overall
the farmers are suffering from this performance of Indian banking
major economic malaise "aIled system is 15per.cent as against the
indebtedness along with lack of timely - norms of 18 per'cent of Net Banking
and adqequate farm credit. Agricultural Credit. Indian record of .extension of
distress witnessed in the country rurar" credit- is a quite story of
occasionally takes the form of suicides institutional innovations. A
by farmers. It is a symptom of a deep- remarkable feature Of agricultural
rooted malady arising from inadequate credit extension in India was the
public investment and insufficient widespread network of Rural
public action in recent years. 9iven the Financial'Institutions. The main story
seriousness of the emerging situation, in the extension of rural credit has
Rural credit St Soldier Management Technical been the ascending of commercial
IristituteJalandharorganized a two days banks along with RRBs with a
,system must be National Seminar jointly sponsored by corresponding. fall in the share of
compatible with NABARD and Planning Commission, cooperatives. This is reflected in the
Government of India. increasing concern in recent years
the goals ,oj over the effectiveness; governanCe
Since the inception ,of Central
higher growth Economic Planning in 1950, the
anci financial . health of rural
cooperative. There is a strong need to
with better equity government identified the credit revitalize rural cooperatives and put
,The author is Principal, St Soldier Management and Technical Institute, Jalandhar.

on a sound, business footing. Lending by the formal financial and land grabbing. Such an Act must
Structural transformation taking place institutions to the poor has been stipulate that all lands grabbed by ,
in the Indian e~onomy has worked unsatisfactory. But their demand for moneylenders in the last 10 to 15
against the agricultural sector. credit has been rising due to growing years should be reverted back to the
, Looking to the credit flow toward family size, increased consumption owners .and there should be
agriculture and allied sector, there is requirements social obligation and so securitising of moneylender's assets:
a positive hope of reverse migration on. But the institutional.agencies not Courts must be instructed to fast track
taking place in the country; The only lack the required mechanism to such cases instituted under the Act.
village~s in the country will become assess their needs but also often RBI should securitise loan of legal
prosperous and urbanities will like to overlook their demand for credit on moneylenders to farmers and take the
go back to thevil1age~ for peaceful the ground that their needs are for assets pledged with moneylenders as
living. non-productive purposes. Besides, their own security. For landless
. perceived high risks, transaction costs workers, banks should take over the
The ,declining growth rate iri.
and absence of collateral security . loans on their books against the cash
agriculture is somethings serious. To
kept the poor away from the hold of flow due to these people under
boost agricultural growth rate, India
formal financial institutions. To reach- NREGP.
needs massive investm«nt in both the
rural poor, institutional innovations
public as well as private investment. Micro finance and Self-help
are needed. Banking infrastructure
But public investment over the years Groups must be fine-tuned. Suitable
needs to re-'orient its finance service
-has stagnated or declined. On the mechanism need to be evolved to see
for rural poor, An independent broad
other hand, subsidies to agriculture that SHGs do not charge high .rates of'
research study may be undertaken to
sector have been blooming. There is a interests from their clients and.
lessen the adminIstrative load and
need to reverse the ratio (4: 1) of improve access to those who cannot
costs such as reduction in the
Investment to subsidies as marginal sign by making their use through
documents required for the purpose. ,
return in terms of agricultural growth thumb impression. The positive
Information technology can play a
and poverty alleviation are much features. of Kisan Credit ard (KCC) is
significant role in rural credit
higher through investment than its revolving credit facility, credit
delivery system. Therefore, the nature
subsidies. limit based on operational holdings
of technology suitable at various
etc. However, under KCC although
There is a need for legal and levels may be identified.
the credit limit sanctioned to the
institutional changes' relating, to
. Rural credit system must be small and marginal farmers appear to
governance, regulation and functioning
compatible with the goals of higher be better 'but the security oriented
of rural cooperative structure and RRBs
growth with better equity. There is lending policies appears to be a
who have to be critical institutions for
merit in considering a comprehensive major hurdle. The scope of KCC
rural credit in future. Both the structure
Public policy on risk management in should be enlarged to take care of the
of cooperative; namely, short run and
agriculture, as not only a means of associated needs of the farming
long run lending insti.tutions rnustbe
relief to distressed farmers but. as an households. Issues of diversion of
merged into one entity to provide good
ingredient for, more efficient KCC funds for non-agricultural
governance and healthy competition in
commercialization agriculture. India activities and failure in the timely
the banking sector. Furthermore, all the
w:ould need new market institution for repayment of credit availed through
three tiers of cooperative, that is, state,
risk mitigation. A future market is a KCC in some parts of the country and
district aJ1dprimaries must function in
step in the right.direction,. which in case of large proportion of the
'collaboration with each other, rather
heeds to be stre~gthened. The key f<\TIIle,:sneed to be addressed ungently.
than competing. There is a need to
issue is minimizing the market risks This can go a long way to bring
Joster credit structure to make enhanced
for farmers for creating a scale of prosperity to Indian farmers. 0
rural credit a lasting phenomenon.
marketing for the produce of the
The majority of rural households small farmers, Government should' Corrigendum
are with limited land resources promulgate a Prevention of Atrocities On the last page of Jan 07 Special
Issue of Yojana, the date of joining of
coupled with small economic activity on Farmers and Farm laborers Act for Deputy Chairman, Montek Singh
accompanied with poor technology.' addressing usurious money lending Ahluwalia may be read as 04 July, 2004.

In the News
• The legislation to pr~vide for 27 per cent • Other Cabinet decision-
reservation for OBCs in educational institutions o Insurance Amendment Act for revision of FDI
including the IITs and IIMs from' the next cap referred to a Group of Ministers.
academic year has become a law with the
a Deadline for telecom companies to comply with
President Dr APJ Kalam giving his assent to it.
FDI guidelines extended till the end of January,
The provisions of the Act would not apply to
2007.
Central educational institution established in tribal
areas, institutions of excellence, research a The Union Cabinet discussed a proposal Oltl
institutions of national and strategic importance investment patterns to govern pension funds and
and minority educational institutions. decided to convene a Chief Minister's
conference on how to invest money they have
• Marking the opening up of the Indian stock
generated.
exchanges to foreign investment, the world's
largest stock exchange - New York Stock a The government has decided to completely exit
. Exchange - has entered India by inking a deal to auto major Maruti by selling its residual 10.27
pickup a 20 per cent stake in the National Stock per cent stake which is over Rs 2,700 crore.
Exchange (NSE) along with Goldman Sachs and
~ Passport norms eased -
two other private equity funds for $ 490 million.
The usually cumbersome and stressful process of
• Led by oil refinery production and cement, the
getting passports made will be easier now
six core infrastructure industries posted an
following the Ministry of External Affairs move t.o
impressive growth of 9.5 per cent in November
revise the guidelines of issuance of passports to
this fiscal compared to 5.7 per cent in the same
make it user-friendly. The cpanges are:
month of 2005.
a Eligibility criterion for Emigration Check Not
• The Centre has approved the amendment of
Required (ECNR) stamping will hereafter be
Maternity Benefit Act, 1961. This will empower
matriculation rather then graduation as at
the Central government to revise the medical
present.
bonus payable. At present, this bonus is Rs. 250
and the government considers there is urgent need a No police verification required for re-is~ue of
to revise it to Rs 1,000.The Amendment Bill will passports. .
be introduced in Parliament. a Tatkal passport in 14 days and in seven days
• The Union Cabinet has approved a self- for an extra Rs 500/-
employment scheme for rehabilitation of manual • The Union Cabinet has approved amendments to
scavengers as a' Central sector scheme. It will the Electricity (Amendment) Bill, 2005 to check
benefit about 3.5 lakh three [mancial years from theft of electricity move effectively.
2006-07 to 2008-09. • The UN Security Council has agreed to impose
• The Centre has approved the constitution of two sanctions against Iran for refusing to suspend
wage board (under a common chairman)- one .for uranium enrichment. The resolution asks all
working journalists and the other for non-working counties to ban the supply of sp~cified materials
journalist newspaper employees. The two wage and technology that could contribute to Iran"s
boards will submit their reports wifu three years. nuclear and missile programmes. [J
.72 YOJANA February 2007

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DEVELOPMENT & DISCONTENT

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February 2007 Vol 51

Let noble every side

THE PROBLEM 5 VIOLENCE: CENTRAL BIHAR : 44

INTERVIEW: M.S. SWAM INATHAN 59

GREYHOUNDS 29 CYCLE RICKSHAWS IN DELHI 66

AN INTEGRATED STRATEGy 31 RELIGIOUS SHRINES 68

INDIA'S GORDIAN KNOT : 37 RURAL FINANCE IN INDIA 70.

SECURITY IN THE AGE OF GLOBAL TERROR 41 IN THE NEWS , :. 72

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To Know the Budget

With indePtbanaly~is,.~rit~:u~~,~!th Pictrire~il~r~Ph~~s'o~;,the;E~?n~~kSu~yey" 06~~7,

Readers may place their order with local agents

2 YOJANA February 2007

About the Issue

YOJANA February 2007 3

4 . . YOJANA February 2007

YO.J:ANA February 2007 5

6 YOJAN~ February 2007

this would go a long way in tackling the

..hff tmom IilPPT !Milts

for mo.•ement -{"3'

I:ssues and, Concerns

YOJANA February 2007 9

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l-+ No. oflricidenls

Source: Ministry of Home Affairs (MHA)

10 . YOJANA February 2007

EASANTS DID not some states has exacerbated the

YOJMrA February 2007 11

12 , YOJANA, February 2007

YOJANA February 2007 13

14. YOJANA Feb~ary 2007

NDIA'S MOST significant strength and capacities to deal firmly

YOJANA February 2007 15

16 YOJANA February 2007 .

Naxal Violence in C.hhattisgarh

YOJANA February 2007 17

18 YOJANA February 2007

, Naxal Activity on the Decline, Says Union Home Secretary

'~II1~e 1\f.~x~l.~,am~ct~d"Sfate~ ~!a:!e~~er~,h~faid,~e,'GovetJlment's training to the .

YOJANA February 2007 19

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' , _ " :. _:~': '_'. C'-'.' __

paramilitary forces are \

Diffictdties, failures and setbacks

are not a Fifth Schedule of the Constitution, he

NEXT STOP: MOON

¥' ,,' '"

NlUALtSM ;' .'~,,',' /"j"

.""~ {.. /~IEW'POINT

HE NAXALITE movement occupied the land of the kulaks and

Head 2002 2003 2004 2005 Head

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2003 2004 2005 Head 2005 (31.10.2005) '2006 (31.102006)~

Garakala daras (Lord of the Bushes) is bordering districts of Karnataka and

"mm]The Naxalite movement in Bihar is

Greyhounds The Answer to

NDHRA PRADESH, which erstwhile government in the state has

The. author is Chief PRO with Andhra Pradesh Police.