Never before has the Indian state faced such a formidable challenge

By a quirk of fate, India in the twenty-first century has turned out to be the confluence of every kind of violence: insurrection or insurgency in order to carve out sovereign states; armed liberation struggle motivated by a rejected ideology; and terrorism driven by religious fanaticism. Never before has the Indian state faced such a formidable challenge. Never before have the Indian people been asked to prepare themselves for such fundamental changes in the manner in which the country will be secured and protected.

The present architecture consists of political, administrative, intelligence and enforcement elements. What will strike any observer is that there is no single authority to which these organisations report and there is no single or unified command which can issue directions to these agencies and bodies.

Some changes have indeed been brought about after December 1, 2008. The most beneficial change has been the operationalisation of the Multi-Agency Centre. By an Executive Order issued on December 31, 2008, the MAC was energised with a broader and compulsory membership and a new mandate. Every piece of relevant information or intelligence gathered by one of the participating agencies is brought to the table. It is analysed and the analysis is shared with the participating agencies. The key benefit is that no one can say that his/her organisation was kept in the dark.

For example, there is a need to network all the databases that contain vital information and intelligence. Today, each database stands alone. It does not talk to another database. Nor can the ‘owner’ of one database access another database. As a result, crucial information that rests in one database is not available to another agency. In order to remedy the deficiency, the Central Government has decided to set up NATGRID. Under NATGRID, 21 sets of databases will be networked to achieve quick, seamless and secure access to desired information.

Another major idea is the proposal to set up the National Counter Terrorism Centre (NCTC). As the name suggests, the goal is to counter terrorism. Obviously, this will include preventing a terrorist attack, containing a terrorist attack should one take place, and responding to a terrorist attack by inflicting pain upon the perpetrators. Such an organisation does not exist today. I am told that the United States was able to do it within 36 months of September 11, 2001. India cannot afford to wait for 36 months. India must decide now to go forward and India must succeed in setting up the NCTC by the end of 2010.

Once NCTC is set up, it must have the broad mandate to deal with all kinds of terrorist violence directed against the country and the people. While the nature of the response to different kinds of terror would indeed be different and nuanced, NCTC’s mandate should be to respond to violence unleashed by any group — be it an insurgent group in the North East or the CPI (Maoist) in the heartland of India or any group of religious fanatics anywhere in India acting on their own or in concert with terrorists outside India. NCTC would therefore have to perform functions relating to intelligence, investigation and operations. All intelligence agencies would therefore have to be represented in the NCTC. Consequently, in my proposal, MAC would be subsumed in the NCTC. As far as investigation is concerned, Government has set up the National Investigation Agency, and that agency would have to be brought under the overall control of NCTC. The last function -— operations — would of course be the most sensitive and difficult part to create and bring under the NCTC. But I am clear in my mind that, without ‘operations’, NCTC and the security architecture that is needed will be incomplete. It is the proposed ‘operations’ wing of the NCTC that will give an edge — now absent — to our plans to counter terrorism.

The establishment of the NCTC will indeed result in transferring some oversight responsibilities over existing agencies or bodies to the NCTC. It is my fervent plea that this should not result in turf wars. Some agencies would naturally have to be brought under NCTC and what come to my mind readily are NIA, NTRO, JIC, NCRB and the NSG. The positioning of R&AW, ARC and CBI would have to be re-examined and a way would have to be found to place them under the oversight of NCTC to the extent that they deal with terrorism. The intelligence agencies of the Ministry of Defence and the Ministry of Finance would continue to remain under the respective Ministry, but their representatives would have to be deputed mandatorily to the NCTC. NATGRID would obviously come under NCTC.

Given the overarching responsibility of NCTC and its mandate, it will be obvious that it must be headed by a highly qualified professional with vast experience in security related matters. Considering the structure of our services, it is natural to expect that the head of one of our organisations will be appointed to the post, by whatever name it may be called. He/she could be a police officer or a military officer. He/she will be the single person accountable to the country on all matters relating to internal security. At the Government level, and in order to be accountable to Parliament, it would be logical and natural to place the NCTC under the Ministry of Home Affairs.

That leaves the question of the structure of the Ministry of Home Affairs itself. MHA now handles a wide portfolio of subjects ranging from ‘freedom fighters’ to ‘forensic science’. Is this a functional arrangement to deal with the grave challenges to internal security that we face and that we will face from many more years? I am afraid not. It is true that the words ‘Ministry of Home Affairs’ have an authoritative ring, but the MHA now performs a number of functions that have no direct relation to internal security. For example, it has a division dealing with freedom fighters but it does not have even a desk for dealing exclusively with forensic science. There are other divisions or desks that deal with Centre-State Relations, State Legislation, Human Rights, Union Territories, Disaster Management, Census etc. These are undoubtedly important functions and deserve close attention. However, internal security is an equally, if not more, important function that deserves the highest attention. In my view, given the imperatives and the challenges of the times, a division of the current functions of the Ministry of Home Affairs is unavoidable. The Home Minister should devote the whole of his/her time and energy to matters relating to security.

If, as a nation, we must defend ourselves in the present day and prepare for the future, it is imperative that we put in place a new architecture for India’s security.