Archive for the ‘government’ Category

The Four Sins of the Delhi Police

One dislikes passing judgment on others, mindful of the Biblical saying “judge not lest ye be judged”. And yet a time comes when it is difficult to be dispassionate, particularly when there is organised violence aimed at creating fear and poisoning relations between India’s two largest religious communities. What makes the recent horror in North-East Delhi totally unforgivable, especially for those of us who have served in one of the two All India Services (IAS/IPS), is the complete abdication of its statutory duties by the Delhi Police. The events of the last week of February 2020 were the tragic denouement of a sequence of happenings over the past two months, as the Delhi Police slipped deeper and deeper into the mire of partisanship and extremely unprofessional functioning, when one was left wondering if the Indian Penal Code (IPC) and the Criminal Procedure Code (CrPC) were applicable in the National Capital Region of Delhi. We can list the four instances, culminating in the recent violence, when the Delhi Police gave short shrift to the criminal laws of the land and, indeed, to the very Constitution they are sworn to uphold.

It all started with the entry of the police into the Jamia campus on 15 December 2019. Even presuming grave provocation from the students, the videos of the library assault (not denied or controverted officially) point to a mentality in the guardians of law and order of “teaching a lesson” to students. All the canons of law and order maintenance enshrined in India’s criminal laws do not permit the police to use force to an extent greater than is needed to restore normalcy. The videos show helmeted policemen using lathis on students sitting in the library, who were certainly not engaged in any violent act. Even if they were wanted for any previous transgressions of the law, they could have been arrested following the usual procedure. By this one irresponsible action, the Delhi Police set off a chain reaction that has since reverberated across University campuses throughout the country.

The second instance of police apathy was even more inexcusable. The JNU was invaded by gangs of armed thugs on the evening of 5 January 2020. The same police which raided the Jamia Campus without any request from the Jamia authorities decided to stay put at the JNU gate even when there was enough evidence (on social and electronic media) that cognizable offences involving danger to life and property were being committed within the campus. What makes the entire episode ludicrous is the fact that, two months after the incident, no FIRs have been registered against a single goon who indulged in violence and vandalism; instead, the only FIRs that have been lodged have been against the victims of the assault.

Act 3 of this sordid drama took place in late January/early February 2020 during the elections to the Delhi Assembly. Three violations of the Election Commission’s Model Code of Conduct, two by elected Members of Parliament (one of them a Minister in the Government of India) and one by a BJP candidate, merited action under the IPC. But even though all three of them were slapped with limited campaign bans by the Election Commission, the Delhi Police did not invoke Sections 153A/295A of the IPC, which would have served as a salutary reminder to politicians not to resort to incendiary campaigning to win votes. The failure of the Delhi Police to rein in the political class when they were presented with a golden opportunity laid the seeds for the bitter harvest that followed in the last week of February.

The final nail in the coffin was hammered in when Kapil Mishra, the same local politician indicted earlier by the Election Commission (and who lost the elections) decided to refurbish his standing by giving an ultimatum to the anti-CAA/NPR protesters in N-E Delhi to remove their blockage of public spaces, failing which the threat of direct action was given. The resultant outbreak of violence spiraled into full-fledged arson and murder. It is here that the conduct of the Delhi Police comes in for the most criticism. With protests across the city over the past two months, the police should have been alert to nip any violence in the bud. Preventive action against criminal elements, presumably taken during the elections, should have been continued with thereafter, given the ongoing protests. Delhi’s borders with neighbouring states, especially UP, should have been sealed to prevent infiltration of outsiders. But what was damningly on view over three days was the inaction (at best) and complicity (at worst) of the police. Given the fate of all postmortems into riots in India, one is doubtful whether the truth will emerge in the future. But intrepid young journalists have captured on camera roving gangs indulging in assault and arson. That the violence ceased once there was a show of force is a clear indication that it was a case of “too little, too late” as far as the Delhi Police was concerned.

Three basic lessons in law and order maintenance were ignored by the Delhi Police:

  • Making it clear from the outset that the police is in control: At no stage should politicians, their henchmen and anti-social elements get the feeling that they can operate in violation of the law. The JNU incident had already infused confidence in some groups that the police would not act against them, even when they indulged in violence. Strong preventive action under the CrPC and the local police laws, externment from Delhi of certain criminal elements and, where required, use of draconian laws like the National Security Act would have sent a clear message to those intent on disturbing the public peace.
  • Zero tolerance for offences posing a threat to person and property: From my own experience, I can aver that unless incidents of assault and arson are dealt with firmly and promptly, they tend to snowball into a free for all between members of different communities. Lathi charges are normally enough to cool down even impetuous hotheads; however, on occasions, stronger action, such as police firing, may be required to restore order in a short timeframe and reduce casualties.
  • Leading from the spot: By far the most crucial element in law and order policing is the quality of leadership. The leader must inspire confidence in his/her force by being on the street. DMs and SPs in the districts and Police Commissioners / Joint and Addl. Commissioners must be in the thick of the fray. It was inexcusable that senior police officers from the Police Commissioner downwards were not visible till Day 3 of the disturbances in even one of the many videos shot from the scenes of arson and assault. A leaderless police force then took the path of least resistance since there was no one in authority to spur it to action.

The Delhi Police has suffered serious damage to its image and self-esteem. A new Commissioner has taken charge. It is now time for the Delhi Police to assert its authority and make it clear that it will not tolerate violations of the law from any quarter. It is also time for all governments, including the central government, which supervises the Delhi Police, to act on the 2006 directions of the Supreme Court in the Prakash Singh case, aimed at professionalising the police and insulating them from political interference. Above all, it is time for my fellow colleagues in the two All-India Services charged with the maintenance of law and public order to reaffirm their complete faith in and loyalty to the Constitution of India and rise above all sectarian considerations in discharging their duties honestly and diligently.

(The edited version of this blog is carried in the 5 March 2020 edition of the Deccan Herald)

 

 

Jeenaa Yahaan Marnaa Yahaan

(The full forms of the acronyms used in this blog are given at the end for easy reference)

Like a pesky earworm, the words of songs from Raj Kapoor’s Mera Naam Joker keep reverberating in my ears nowadays when I sit down to pen my blogs. If it was Jaane Kahaan Gaye Voh Din that resonated with me when I wrote my last blog, the present blog brought to mind that priceless masterpiece Jeenaa Yahaan Marnaa Yahaan. Lest my reader think that I am engulfed in maudlin sentimentality, let me emphasise that there is a logic to the use of these titles. My last blog reflected my dismay at the state of affairs in India’s district/police administration. The present blog focuses on the issue uppermost in the minds of most, if not all, of India’s 1.3 plus billion inhabitants. Yes, I refer to the CAA-NPR-NRIC triad, which has occasioned intense but non-violent protests on a scale not seen for many years.

Thanks to the wisdom and humanity of the politicians at the helm of India’s governance in the years after her independence, India went in for a liberal interpretation of citizenship, based on the jus soli principle, i.e, birth in India after 26 January 1950 was deemed to qualify one for Indian citizenship. The first blow to this principle came in 1987 in the wake of the Assam Accord. From 1 July 1987, birth in India was not a sufficient condition for citizenship: one parent also had to be a citizen of India by birth. This meant a move towards the concept of jus sanguinis in defining citizenship, with descent, rather than birth alone, being the defining criterion for citizenship. The second, and far more telling, move towards a more constricted definition of citizenship came with the 2003 Act. Not only was one parent required to be a citizen of India, there was the additional stipulation that, at the time of birth, the other parent should not have been an “illegal migrant” (defined as a foreigner who entered India without valid documents or who, with valid documents, overstayed in India beyond the permitted period). It is instructive to note that the 1987 and 2003 changes in the definition of “citizenship by birth” in the 1955 Act, as well as the 2003 Rules seemed to enjoy a broad consensus across the political spectrum. Not only did the previous UPA government go along with all these provisions, it even toyed with the idea of the NPR followed by the NRIC before carrying out the NPR exercise in 2010 and then dropping the idea of the NRIC in favour of the Aadhaar exercise.

It is the third move in 2019 to amend the 1955 Act that has finally set the cat among the pigeons. Efforts since 2016 to amend the 1955 Act to provide fast track access to Indian citizenship to “persecuted” persons belonging to specific countries (Pakistan, Bangladesh, Afghanistan) had been stymied by the inability to get the legislation through the Rajya Sabha; support from non-BJP parties, which either did not understand the implications of the legislation or chose to support it out of their own political calculations saw it enacted within the space of three days in December 2019.

A reading of the CAA reveals nothing about granting fast track citizenship to “persecuted” minorities from the three countries in our neighbourhood. While this view may have been put forth in the Statement of Objects and Reasons of the CAB, its absence in the CAA is puzzling. Even if the word “persecuted” finds its way into the Rules to be enacted to give effect to the CAA, determining whether or not a claimant for Indian citizenship has indeed  been persecuted in his/her former country will be very difficult. There is also the issue of the claims of refugees from other countries in the neighbourhood – Shias/Ahmadiyyas from Pakistan, Tamils from Sri Lanka, Rohingyas from Myanmar – which will fall through the sieve. Not only, therefore, are there serious issues relating to the CAA violating the principles of equality and secularism (parts of the inviolable basic structure of the Constitution of India), there is also the moral indefensibility of a statute that seeks to pick and choose who among the residents of India’s neighbouring countries is eligible for Indian citizenship. In any case, the process had already commenced from 2015: in a set of four notifications issued quietly between September 2015 and September 2016 under the 1955 Act, illegal migrants from the religious communities from Afghanistan, Bangladesh and Pakistan now covered under the CAA had already been exempted “from the adverse penal consequences of the Passport (Entry into India) Act, 1920 and the Foreigners Act, 1946 and rules or notifications made thereunder” (as stated in the same Statement of Objects and Reasons at the time of introduction of the CAB in Parliament). These notifications exempted such classes of “illegal immigrants” from prosecution and also provided for their obtaining long-term visas  to stay in India. A government that wanted to favour specific groups from certain countries could well have exercised its existing powers on a case by case basis without highlighting the exclusion of India’s largest minority religion.

It, therefore, appears that the BJP wanted to ensure that the NRC process in Assam does not affect the large number of Hindus who had been declared “illegal immigrants” under that exercise. In the process, the government and the party ruling at the centre ended up with a double whammy. The indigenous people of Assam have made it clear for over forty years that they are opposed to migration from across the international border, irrespective of the religion of the migrant. Even the exclusion of tribal and Inner Permit line areas in the North East from the ambit of CAA has not assuaged feelings, especially in Upper Assam. At the same time, the exclusion of Muslims from the CAA has occasioned a different sort of apprehension in India’s largest minority. This is linked to the feeling among Indian Muslims that they have been at the receiving end of many events over the past five years – the beef ban and consequent lynching of Muslim dairy farmers, the love jihad crusade of Hindu vigilante groups, the opposition to the performance of namaaz in public places and, in general, a vitiated level of public discourse which questions the loyalty to India of the Muslim community.

Brutus may have seen the tide in the affairs of men, taken at the flood, leading on to fortune. Unfortunately, for the central government, the tide has come in at a rather inopportune time. The CAB was on the anvil from 2016. Had it been passed at that time, when the NPR and NRIC were nowhere on the horizon, the three issues may not have been linked together. There are also various events since the middle of 2019 which have heightened the sense of insecurity in Indian Muslims. The abrogation of Article 370 of the Constitution of India and the virtual shutdown of Kashmir since August 2019 followed by the Supreme Court decision in the Ayodhya matter had already caused deep unease in the community. The reports of human suffering occasioned by the Assam NRC as lakhs of people ran from pillar to post to establish their rights to Indian citizenship were compounded by the belligerent statements from those at the highest levels of the central government that the NRC would be extended to the entire country, coupled with accounts of detention centres coming up in different parts of the country. These developments, linked with the CAA’s specific exclusion of Muslims, raised fears that the CAA-NPR-NRIC combination could see substantial segments of the Muslim community losing their Indian citizenship.

While the central government has been reiterating that the CAA is intended only to enable those from the three neighbouring countries get fast track citizenship, the NPR-NRIC provisions (enunciated in the 2003 Rules), which allow for a government functionary at a fairly junior level to raise doubts about the citizenship status of a person, give cause for apprehensions. As of date, there is still no clarity as to what documents, if any, will be required to establish one’s citizenship. In a country where birth registration systems have been notoriously lax in the past (though improving now), proving the fact of one’s birth in India could prove well-nigh impossible, more so if the standard documents, such as passports and voter identity cards, are not acceptable as proof of citizenship.

This is not the place to raise all the issues relating to the difficulties in proving one’s citizenship. Suffice to say that, post-1991, the Indian populace was getting used to not having to stand in queues for every facility, a feature of the forty years prior to 1991 for getting access to milk, kerosene, landline telephones and LPG connections. This habit was revived in the post-demonetisation phase from November 2016, when every resident of India stood for hours in queues to be able to draw cash from banks. One certainly hopes and prays that the NPR-NRIC exercise, wherever implemented, does not lead to interminable queues in front of tahsil and municipal offices as people seek to prove their Indian citizenship. Political parties and governments have their own reasons for carrying through this onerous exercise. The aam aurat/aadmi just wants to carry on with the business of daily life and securing her/his roti, kapda and makaan. For her/him, what is relevant is this line sung by Mukesh:

 

जीना यहाँ मरना यहाँ इसके सिवा जाना कहाँ

 

1955 Act: Citizenship Act, 1955

2003 Act: Citizenship (Amendment) Act, 2003

2003 Rules: Citizenship (Registration of Citizens and Issue of National Identity Cards) Rules, 2003

BJP: Bharatiya Janata Party

CAA: Citizenship (Amendment) Act, 2019

CAB: Citizenship (Amendment) Bill, 2019

NRC: National Register of Citizens

NRIC: National Register of Indian Citizens

NPR: National Population Register

UPA: United Progressive Alliance

 

Jaane Kahaan Gaye Voh Din

What particularly disturbed me about the recent events linked to the anti-CAA protests in Uttar Pradesh and Delhi was the numerous reports of the high-handed behaviour of the police force with students and the public  as well as their studied inaction when armed goons were given a free run of the JNU in the heart of New Delhi. Even if they had indeed been subjected to assault and grave provocation in UP (as they claim), there was no case for the police to vandalise residential dwellings and intimidate family members of those who may have been protesting on the streets. It is a laid down maxim of law and order maintenance that only so much force should be used as is required to bring the situation under control. Nor was there any justification for the use of unchecked violence by the guardians of law and order within the precincts of two reputed institutions of higher learning. But the evidence on record seems to indicate a police force intent on “teaching a lesson” to anti-CAA protesters and instilling fear in students in India’s premier universities.

As someone who has often been on the streets in his district days handling crowds (and mobs), I often wonder how a district officer (executive magistrate or police) can so easily forget his/her relationship with the local people. An officer posted in a district (or city) is in a fiduciary position with respect to the entire population in his/her jurisdiction. That is to say, a relationship of trust must exist between the government functionary and those s(he) serves. Nothing can be more satisfying (and, indeed, gratifying) to go back to an area one has served in two or three decades ago and run into people who remember one affectionately. What this requires, above all, is a deep commitment to the people one serves. Even when some of them are angry and hell bent on destructive activities, the effort should always be to resolve the immediate situation as peacefully as possible (use of force being a last resort) and, thereafter, rebuild the citadel of trust and mutual existence.

Maintaining a peaceful atmosphere in an area requires the officer to abide by the glorious words enunciated in the Preamble to the Constitution of India which highlight the eternal principles of “justice, liberty, equality and fraternity” and the word “secular”, which has been debased in the present day. Contrary to what right-wing moralists think, “secular” means an equal respect for all religions and religious practices with the full right being given to all to follow whatever beliefs they held. The District Magistrate (DM) and the Superintendent of Police (SP) are present at occasions of all religions / sects / communities, not merely to maintain law and order but equally to share in the sentiments of the members of all communities. In my time as a DM, I participated in activities on the occasions of Ambedkar Jayanti, Shivaji Jayanti, Ganapati festival, Ramzan Id and Bakrid, apart from the Urs of local saints.

This close relationship with people of different communities had its dividends when external events threatened to derail amity between these communities. Apart from formal Peace Committee meetings at district and taluka headquarters, there was also an outreach by the district administration to leaders and opinion makers in various political outfits and religious denominations to gauge the mood in different sections of the public, as also to send across the message that a close watch was being kept on activities likely to be detrimental to the maintenance of law and order.

Which is where I am aghast at the turn of events over the past six weeks, in Delhi and even more so in UP. Independent reports seem to indicate that the police at the thana level were operating on the direct orders of their political overlords, with little control by district officers. Barring one or two instances, there was no interaction of senior district officers like the DM and SP with the media; in fact, there was little evidence of their presence at the scenes of action. Nor were the Police Commissioner (CP) of Delhi or his senior officers to be seen handling the situation at JNU: the absence of arrests after three weeks tells its own tale.

What is increasingly worrisome is the sluggish response of the law and order machinery to open challenges to its authority. In the case of the agitations against the CAA, the intelligence outfits ought to have been aware of the unease in sections of the public. Surely, additional force could have been mustered to deal with the developing situation. Were any efforts made by the district administration to engage with local leaders to work out a method for peaceful expression of the feelings of those aggrieved?

I also find it difficult to believe that the district administration cannot, through impartial but strict policing of a developing situation, control the negative fallout. Lists of history sheeters, rowdies and known troublemakers are available with every DM and SP. The standard practice before festivals and before likely outbreaks of violence is to take preventive action under the Criminal Procedure Code, local Police Acts and, where absolutely necessary, even invoke the National Security Act. Generally, even-handed action is initiated against such elements in different communities to ensure that vested political interests are not able to assemble armies of such elements.

The pernicious influence of tawdry politics on the police and executive magistracy was already visible to me two decades ago, when I returned to district governance after a ten-year hiatus. Transfers of even taluka officials were being managed from state headquarters (in a supposedly progressive state like Maharashtra) and district and sub-district officers had developed close relationships with Ministers and MLAs. But it has been an article of faith for me (and many of my colleagues in the IAS and IPS) that firm, principled leadership of the DM and SP (and, where applicable, the CP and police officers under him) can enable control of volatile situations even in troubled times like those we see today.

It is here that I note with dismay the almost total abdication of their duties by the magistracy and police in the unfortunate occurrences in UP, Delhi and Karnataka since mid-December 2019. Where the police and district administration should have tactfully handled inflamed public opinion and let it release steam, they adopted strong-arm tactics. That a tactful approach worked in all those states where the police were not under pressure from the government of the day only proves the point. Where the police should have stepped in firmly (in JNU) when cognizable offences under the Indian Penal Code were being committed, they chose to look the other way, so much so that not one attacker has been arrested so far. The brazen shooting incident in Jamia in the full presence of the Delhi Police on Mahatma Gandhi’s death anniversary stands mute testimony to the utter collapse of policing in Delhi.

A healthy democratic system is critically dependent on effective, impartial institutions that are committed to upholding the rule of law. Often, this requires officers to take actions that are not to the liking of those in power, even if the consequences for these officers are not pleasant. But the recent instances where the police have overreacted, in UP and Delhi (Jamia), and have been wilfully inactive (JNU) point to a deeper malaise where the administrative leadership is virtually non-existent. Such a situation is hardly likely to inspire citizen confidence in its police. It is not as though in riots in the past, the district administration and the police were not partisan or sectarian in their approach. But in comparison with the present day, we may well be left feeling nostalgic for even a flawed administration of the past, humming Raj Kapoor’s line “जाने कहाँ गए वह दिन”.

 

 

 

Model Code of Conduct for elections – the use of cards

After nearly thirty years of participating in the conduct and supervision of Indian elections and observing elections at national, state and local levels since 1971, I am struck by the abyss into which debate has descended in the 2019 general elections as well as the open challenge thrown to the authority of the Election Commission of India by all political parties and candidates, especially the ruling party at the centre. What is even more dismaying than the “in your face” behaviour of the political class has been the servile responses of sections of the bureaucracy, the latter constituting, in my view, a far more serious threat to democratic norms.

Standards of decent discourse have virtually vanished from the Indian political firmament and the present elections confirm this depressing phenomenon. Humans have been classified as termites and sections of them have been threatened with expulsion from the country. Blatant appeals have been made to divisive religious sentiments and politicians have gone so far as to warn voters of the consequences of not voting for them. The sacrifices made by security forces are being made to serve as election fodder. Vicious personal attacks are the order of the day and serial offenders from previous elections are displaying their dubious talents freely. Equally galling has been the brazen promotion of a single personality through multiple media modes without any hint of embarrassment or concern for conventions. We have also been treated to the disgusting spectacle of a self-styled Sadhvi denigrating the memory of a police officer who lost his life in the Mumbai 26/11 attacks.

2019 also marks, in pronounced fashion, the entry of the disease of political partisanship into the bureaucracy. In previous elections, it was the normal practice to transfer officers who had done adequate time in their current postings as well as those perceived as unduly close to those in power. But the need to move officers at the topmost levels of the police and civil services after the election process got under way points to the rot in the steel frame. Three top functionaries of the NITI Aayog, the central government’s top policy think tank, have, through electronic and social media, expressed views and displayed achievements which have the effect of supporting the government of the day and downplaying its opponents. The NITI Aayog is reported to have asked district collectors, who are the fulcrum of the election process, to furnish information on the achievements in different government programmes for use by the Prime Minister in his election speeches. A serving Air chief makes a public statement about the Balakot air strike and, for good measure, also drags in the controversial Rafale aircraft into his observations. In a first for India’s highest bureaucracy, the attitude of its central Department of Revenue in not keeping the Election Commission apprised in advance of income tax raids on political personalities has been castigated by the Election Commission as “insolent”. To cap it all, a junior functionary of the Union Home Ministry wakes up from slumber after many years to ask the leader of the opposition Indian National Congress to prove his nationality. It almost makes one wonder whether government departments have been awakened like Kumbhakarna only at the time of electoral battle.

Even though the Model Code of Conduct has a moral rather than punitive force, Article 324 of the Constitution of India, backed by various Supreme Court rulings, gives the Election Commission wide powers to enforce its writ in grey areas where the law is silent. Taking an analogy from the game of field hockey, it makes sense to enforce the three card rule: a green card for minor fouls, a yellow card for more serious infractions (with suspensions for repeat offences) and a summary send-off on being shown a red card. The Election Commission should devise its own sets of cards, one set for unruly politicians and another set for errant bureaucrats.

The green card rule for politicians would involve censure of the offensive act with or without fine. This will not deter the “thick-skinned” among the tribe but would serve as a warning that their conduct is under close watch. Another offence would have the effect of moving them to the yellow card category, which could see bans on campaigning by the concerned individual, ranging from a few days to a total ban for the entire election period, depending on the gravity of the offence. The red card would come into play when the candidate/politician commits a really serious offence, like open incitement to violence or indulging in major criminal offences. It would involve the cancellation of elections in that particular constituency, with these elections being held a couple of months after the completion of the election process under close supervision of the Election Commission and with heavy deployment of security forces.

The bureaucracy’s “three card” rule would more or less conform to the disciplinary proceedings which are presently initiated against government personnel. Officials who are green-carded would be censured, the censure being reflected in their annual confidential reports, with impact on future promotions. The yellow card would involve imposition of punishments like withholding of pay increments for a certain period or reduction to a lower time-scale of pay, grade, post or service for a specified period (without cumulative effect). Major penalties (the “red card”) would range from loss of seniority to compulsory retirement to dismissal from service. Such action by the Election Commission would be taken in consultation with the concerned government, with confirmation by the appropriate Public Service Commission.

Of course, judicious and strict enforcement of the “three card” rule would require a strong and impartial referee who does not hesitate to blow the whistle when needed and to flash the relevant card. Sanctions against erring politicians/bureaucrats need to be promptly enforced to serve as a warning to potential transgressors. Most importantly, the teams (political parties/governments) themselves need to introspect on whether they should retain such players (politicians/bureaucrats). If all concerned do not abide by the rules of the game, elections will descend into anarchy, with the danger of the eventual demise of democracy.

Lessons from an Indian Humphrey Appleby

These are increasingly difficult times for the civil services in India. As if sending a former Coal Secretary to jail wasn’t enough, sleuths have now zeroed in on former senior Finance Ministry officials and a former national airline head. With our penchant for digging into every official deal and the tendency for any prosecution to drag on for eternity, civil servants are left wondering whether they will be able to enjoy their pensions in peace. This is a particularly appropriate time to be penning this blog in the interregnum between two political regimes. Mark Antony’s words “The evil that men do lives after them…” will be giving innumerable civil servants sleepless nights as they agonise over whether a change of government may mean facing charges of wrongful decisions made during the tenure of the previous regime. Although one cannot alter the past, here are some thumb rules for civil servants to avoid the treacherous trap of hasty, ill-thought out decision making that can boomerang on them in the months and years to come. I humbly dedicate these rules to that master of bureaucratic aphorisms, Sir Humphrey Appleby.

Rule 1:  Avoid discretionary decisions like the plague

Whenever scarce resources – spectrum, coal/oil blocks, private universities, primary schools – are to be allocated, go in for a transparent bidding process, with clear technical specifications and financial parameters. The same applies to procurement of any product ranging from foodstuffs to aircraft.

Rule 2: Record on file and keep copies

When Rule 1 is departed from, record your views/objections clearly on file for posterity. Point out the risks inherent in a discretionary policy and insist on transparent norms. If these are not forthcoming, ask for a transfer from that department. Where decisions are taken, even on a rational, transparent basis, keep a scanned copy of the relevant notings with you even after you leave that post: nemesis normally takes anywhere from three to ten years to catch up, given the ponderous ways of the three Cs (CAG, CVC and CBI).

Rule 3: Prevaricate, obfuscate and procrastinate

This Rule, and Rules 4 to 6, are meant for those who are not keen to follow in the footsteps of Ashok Khemka, with the number of transfers far outstripping the number of years of service. Start off by recommending the setting up of an inter-departmental committee with extensive terms of reference. This should buy you time either till the end of your tenure in the department or till your Mantri gets moved in a cabinet reshuffle.

Rule 4: Send the file into orbit

This tactic is especially recommended in the last few days of the financial year and just before the model code of conduct for elections kicks in. To get that annoying Mantri off your back, record some innocuous opinion and seek the views of your bureaucratic counterparts in other departments. Select those of your colleagues who have mountains of files pending with them or mark the file to the Finance Department, which is guaranteed to be swamped with files. Once April 1 dawns or elections are announced, you can regretfully plead lack of funds or falling afoul of the model code of conduct for your continued inaction.

Rule 5: Make the file and yourself scarce

Mantris are especially prone to pressure you when the hour for announcement of elections is well-nigh or even in the short interregnum between the change of governments (the latter may seem unusual but has happened to me). Ensconce yourself in some colleague’s room with firm instructions to your PA to stonewall all queries about your whereabouts even under pain of torture. If the bloodhounds are set to sniff you out, abandon ship, shut your mobile and flee homewards. No one can expect you to attend office at 10 PM, especially if you can swear that the keys to the locked steel almirah in your office are with your colleague who lives at the other end of the city.

Rule 6: Parkalam (let us see)

Civil servants must imbibe that seasoned politician, K. Kamaraj’s phrase “Parkalam” from their early days in service. The Marathi variant of this is “Baghoon sangto”, drilled into me by innumerable senior civil servants and (surprise! surprise!) politicians. Its English version would be “let me see and then tell you”. Having committed to no time frame, who can say when the telling will come? After two or three rounds of this ruse, the pestering politician will give up, knowing that this civil servant has no intention of doing his/her work. At the same time, since no offence has been given, the politician finds it difficult to complain to the powers that be.

Rule 7: A politician is…a politician!

Caveat emptor is the best course of action when a politician assures you that s(he) will stand by you on the decision you have taken. At the end of the day, the civil servant stands alone: even his/her civil service colleagues, while offering lip sympathy, can and will do little to rescue him/her when the chips are down. The politician has the resources to withstand a long drawn out legal process, something which will break any honest civil servant. More importantly, the politician can avail of the services of the best lawyers to stay out of prison (at least in 99 percent of the cases). Don’t believe me? Who spent time in the jug in the Mumbai Adarsh housing case, the politician or the civil servant? Who is currently serving time in the coal “scam” cases? Certainly not the former Coal Minister but rather the former Coal Secretary and his bureaucratic deputies. Also, a civil servant should never forget that a politician thrives on legal tangles: a legacy from British times, when most Indian politicians spent considerable time in courts (and jails). A spell in prison acts as a magic potion for a politician and enhances his/her political appeal, a reason why politicians keep referring to the “will of the people” rather than to the “rule of law”. Nor has one yet come across an instance where the family of a politician has actually starved because of the incarceration of that politician. Contrast this with the lot of the honest civil servant: his/her family is reduced to penury if his/her pension is withheld. Unlike politicians, the honest civil servant also stands the risk of being shunned in social circles. So, the golden rule when dealing with politicians is: smile politely and then apply Rules 1 to 6 above to stay out of trouble.

Good luck to all my fellow civil servants and may we never have to meet in any Central Jail!!

We don’t need Chowkidars

On my innumerable trips from Pune to Aurangabad and vice versa, I have sometimes taken a detour off the highway to the village of Shani Shinganapur. Located in the district of Ahmednagar, this village is home to a highly venerated temple of Shani, the planet-god who evokes immense fear in devout Hindus and whose propitiation is considered essential to progress in life. But what marks out this village, apart from the recent decision to admit women to the shrine, is the fact that there are no doors to houses in the village. This is based on a popular myth that anyone committing theft in the village is visited with the direst of consequences by Shani Maharaj.

Unfortunately, those committing theft/dacoity elsewhere in the country do not seem to fear adverse results for their actions, which is why the institution of chowkidars (guards) is a well-established one in every rural and urban habitation, right from the days of the British Raj. This hallowed heritage is now sought to be appropriated by the members of the political party ruling the country. Visit the Twitter website and you will see that ruling party functionaries, from the Prime Minister downwards, have prefixed “Chowkidar” to their names. Not content with this gesture, the Prime Minister has invited all fellow citizens of India to take the following pledge and join the Chowkidari movement: “As a citizen who loves India, I shall do my best to defeat corruption, dirt, poverty and terrorism and help create a new India which is strong, secure and prosperous.”

While dirt, poverty and terrorism have deep-rooted causes which are beyond the competencies of a chowkidar, the chord that is sought to be struck with the common citizen relates presumably to that old bugbear: corruption. Fair enough, except that here we are dealing with white-collar crime, not its blue-collar or no-collar versions, which would cover, say, a factory worker stealing some goods from the workplace or a petty burglar forcing his entry into a house, both of which the chowkidar is eminently equipped to handle. “Corruption” in its modern Indian avatar relates to the propensity of the dispenser of a scarce commodity (whether a good or service) to extract economic rent for making available the commodity at a price higher than its stated official or market price. If the followers of the Chowkidar movement really mean to remove corruption, they must eschew the noxious habits of mamool or lanjam, those lubricants which grease the wheels of public service delivery. Since it would be highly optimistic to predict a dramatic sea-change in attitudes in a public inured to years of petty (and mighty) corruption, maybe we should see what those in power have done over the past many years to cut corruption at its roots. The results, sadly, are dismal.

Let us start with the Lokpal and Lokayuktas Act. Enacted on the first day of 2014, the Lokpal is just now being appointed after five years, that too after the Government of India received a rap on the knuckles from the Supreme Court. To date, most states have not appointed Lokayuktas; in those which have, there is no news of any major effort to prosecute wrongdoing by those in power, barring Karnataka, which has, in the past, seen a sitting Chief Minister being unseated based on a Lokayukta indictment. Given the past record, the provisions in the 2013 Act for Inquiry Wings and Special Courts do not give much cause for cheer, being a case of more old wine in recycled bottles. The list of failed or partial prosecutions over the past decade give no reason for sudden optimism, be it the CWG scam, the Adarsh imbroglio, the 2G prosecution or even the coal scam. In the last-named case, the only ones to go behind bars on a technicality in the Prevention of Corruption Act (which has since been repealed but which, alas, could not help them) are hapless officers who were manning the Coal Ministry in Delhi at the relevant time. Whether telecom or coal, the judicial verdict seems to have been that the politicians in charge were innocent. Having spent thirty years in government, including in a key economic ministry in the Government of India, I find this conclusion very difficult to swallow. My pessimistic forecast is that we will continue to see years of inconclusive investigations, interminable court proceedings and unsatisfactory convictions.

Changes in rules and procedures governing the allocation of scarce resources, including natural resources, are again conspicuous by their absence. If governments at the centre and the states were serious about checking corruption, especially at the highest political levels, what is needed is the removal of all decision-making powers on procurements and allocations (ranging from coal/oil-gas blocks, defence equipment and spectrum to schools, private universities and food supplies) from the Ministries at the centre and the states and a grim determination to clamp down on political interference in such decisions. State governments are even more prone to this evil. The February 2019 decision of the Supreme Court striking down the award of tenders in 2016 by the Government of Maharashtra for Take Home rations for supplementary nutrition to pregnant/nursing mothers and children under three years of age is a glaring instance where the same firms/entities continue to be favoured regardless of the regime in power.

The present ruling dispensation, despite its protestations about curbing corruption, has taken no steps in this direction. Merely keeping power brokers away from the corridors of North/South Block and Shastri Bhavan is not enough; there are enough meeting places elsewhere in the world. The electoral bonds scheme introduced in 2018 provides a fertile breeding ground for corruption, with identities of both donors and donees (political parties) remaining anonymous. Rupee-laden suitcases or even bank transfers are no longer required; a transfer from an offshore account, with anonymity guaranteed, for favours rendered will do the trick.

Ease of doing business rolls glibly off the tongues of politicians and policy-makers in the India of 2019. Visit a Regional Transport Office (RTO) in any state for a driving licence or a municipality for a building permission and you will be struck by the ease with which business is done in these offices. Portia’s famous speech in The Merchant of Venice on the quality of mercy could apply just as well to corruption as to the quality of mercy: “…It is twice blest; It blesseth him that gives and him that takes…”  Amendments in 2018 to the Prevention of Corruption Act provide for complaints by a person, who is compelled to give “undue advantage”, within seven days of giving such undue advantage. While we are yet to see how this provision works in practice, it is debatable if this will induce bribe-givers to come forward to report bribes, given that they will have to go through the subsequent legal chakravyuha of proving that they were indeed compelled to offer the bribe. In any case, unless processes for licences and permits are time bound with limited areas for discretion and with clearly stated reasons for refusal, removal of petty corruption will remain a pipe dream.

I am not condoning the present state of affairs. All I wish to aver is that unless there is utmost respect for the rule of law and the fear of prompt retribution, corruption is not going to wither away. Doing away with corruption does not require chowkidars, it requires honest thanedars and conscientious nyaya-devatas who will prosecute offenders and deliver timely justice. Till that day dawns, the citizen should use the most effective weapon available to her: she should remorselessly vote out the corrupt politician and hold the government of the day to account. The conventional saying “यथा राजा तथा प्रजा” has to be stood on its head in India of 2019. It should now read “यथा प्रजा तथा राजा”: as are the citizens, so will be the rulers. People get the governments they deserve: if they want a straightforward, corruption-free existence, they must put their political representatives on notice.

Running with the Hares, Hunting with the Hounds – A Dangerous Game

I know it has become a pastime, especially among those sympathetic to or following the present ruling dispensation, to lay the blame for all India’s ills at the door of the Indian National Congress and its presiding deities, the Nehru-Gandhi family. We may pass over the apparent errors of India’s first Prime Minister, including his neglect of primary education and agriculture and his obsession with the public sector, not to mention his disastrous tryst with the Chinese, relying on incompetent advisers. But what, even for true-blue liberals, is not so forgettable are the errors of commission and omission over the last forty years, which have landed the country in crisis after crisis. In trying to be all things to all people, the Congress has been withering away, in the best traditions of Marx’s Communist state.

Let us start with its missteps in Punjab in the late 1970s/early 1980s, followed by the Shah Bano-Ram Janmabhoomi fiascos of the 1980s. Catering to what it thought were specific constituencies, the Congress played with fire and, as expected, sustained severe burns. It forfeited the support of the Sikhs after the storming of the Golden Temple and the pogrom of Sikhs in Delhi in 1984 and alienated moderate Muslims with its anti-woman stance in the Shah Bano case. It then provided oxygen to a weakened BJP by opening the locks of the Ram Temple, followed by a spell of masterly inaction when the Babri Masjid was being demolished. The electorate rightly banished it to the boondocks for eight years, till its return in 2004.

But this blog is not about the past; it is about how the Congress party refuses to learn from its past mistakes. Four recent incidents highlight its continued bumbling and raise serious doubts in the mind of the swing voter about the capabilities of this party to govern the country for the next five years. After managing to secure power in three Hindi heartland states, one would have hoped that the new broom would sweep clean. But there seems to be no effort (at least not in public view) or intention to implement the rule of law in dealing with vigilante rowdyism. Following up on the prosecution of lynchers would have sent a clear message to those who indulged in murder under previous ruling regimes. Not only was this not done, there was the recent incident of film personality Naseeruddin Shah being prevented from participating in the Ajmer Literature Festival. The Chief Minister tweeted weakly about his commitment to the rule of law. But there was no firm police action to make it clear to the protesting hoodlums that their nonsense would not be tolerated. Added to this is the continued ambivalence of the new Congress governments on the “beef ban”. The Rajasthan government seems to have gone further. Newspaper reports speak of its efforts to felicitate those who shelter cows; there is no discussion on reviving the cattle industry and restoring the livelihoods of millions from the minority and disadvantaged communities, while guaranteeing protection to the cow, if the intention was to assuage majority community feelings as well.

The approach to the Sabarimala issue highlights a similar lack of conviction. The party of Mahatma Gandhi and Jawaharlal Nehru is not able to come out with unequivocal support for the right of women to worship at the shrine even after a Supreme Court judgement. Nor is it able to provide a public forum for a reasoned discussion on possible solutions. Caught between the Scylla of belief and the Charybdis of the rule of law, the party has surrendered its moral authority to regressive religious forces. In the process, it has ensured that it will gain the support of neither the pro-changers (especially its women segments) or the conservative no-changers.

A strong enunciation of its belief in the right to equality of all humans by the Congress would have gone down well with the liberal intelligentsia and India’s largest minority community as regards the hasty attempts by the present central government to introduce the Citizenship Amendment Bill. This travesty of a legislation which seeks to confer inferior status on a particular community should have been roundly condemned and public opinion should have been built up against it. Instead, the Congress Party chose to boycott the vote in the Lok Sabha instead of voting against it: yet another opportunity lost to reiterate its clear support for minorities.

Most laughable has been the denunciation of the sedition provisions in India’s criminal laws by a spokesperson of the Congress party, who has also been Law Minister in the previous UPA government. Congress governments of the past have never been chary of using this execrable provision. Sedition cases are now being lodged against students, intellectuals and journalists. Congress governments never tried to do away with this colonial anachronism. In fact, they introduced even more draconian legislation that hit at the liberty of the individual. The Unlawful Activities (Prevention) Act, 1967 (UAPA) was first passed during Congress rule and most amendments stiffening its provisions have been enacted by Congress governments. It has been used against social activists rather than terrorists and seems designed more to stifle freedom of expression and association rather than tackle terrorism. For the Congress party to shed crocodile tears when these laws are misused by police under the present ruling dispensation represents the height of hypocrisy.

Nor has there been any real commitment to administrative, judicial or police reforms on the part of the Congress party. The Reports of the Second Administrative Reforms Commission were ignored by the very Congress government that set it up. India’s governance systems are hamstrung by outmoded management structures and criminal justice (and police) reforms are not even on the horizon. No party, including the Congress, has shown any enthusiasm for the institutions of the Lokpal and Lokayukta, raising serious questions about their commitment to eradicate corruption.

There appears to be no realisation that a political party needs a base of committed voters. This requires the articulation of a clear ideology and adherence to a set of specific principles. These ideological positions also attract an adequate mass of swing voters who are not committed to any specific party but vote on the basis of the programmes that a particular party espouses. Given its past mistakes and the absence of committed cadres, it is little wonder that the Congress party has had a virtual no-show in a number of states in the last general elections. Subsequent disenchantment with the BJP may have yielded seats to the Congress in a number of states, but it should not be forgotten that it could not retain power in the state of Karnataka on its own strength. Even today, the loyalty of its legislators in Karnataka remains suspect, compelling its party managers to resort to resorts to keep the flock together.

Cobbling together a mirage of coalitions is not the route to political power for the Congress. Too many of the players in the political parties that make a great show of unity today have gone through the experiences of unhappy (and uneasy) past cohabitations. Nor have any of these parties inspired confidence in the public regarding the values they stand for. The animals in India’s Animal Farm may then decide to continue with Farmer Jones rather than opt for Napoleon if, the more things change, the more they remain the same.