EFFECTIVE POLICING FOR NATIONAL SECURITY
- N.S.Sisodia*
This paper argues that the nature of security challenges is changing and in this context many of them can be met effectively, mainly through effective policing. To deal with them successfully, Police forces may have to act either on their own or in concert with the armed forces..
DEFINING NATIONAL SECURITY
Traditionally, national security has been defined as the security of the nation state. This includes protection of its territorial integrity, its sovereignty and its vital national interests. The more expanded definition would include security for its citizens and advancement of its national interests.
However, no nation can be secure unless its internal security is also ensured. Internal strife and disorder can damage national interests, endanger the lives of citizens, lead to breakdown of law and order, make enforcement of laws difficult and the country more vulnerable to external threats. In such a state, the society cannot progress smoothly nor can citizens feel secure.
CHANGING NATURE OF SECURITY CHALLENGES
In contemporary times, interstate wars are becoming a rare phenomenon. Nation states are beginning to realize that with modern day technologies, interstate wars can be devastating. Such wars can escalate and engulf other countries. They are expected to be short, intense and are likely to invite rapid international intervention. In the changed scenario therefore, political objectives are unlikely to be achieved through interstate wars. The global community may not accept any change in the status quo by aggression. The modern day wars are being fought amongst the people. Intrastate wars are now much more common. These involve heavy civilian casualties.
Many religious or ethnic groups and other non-state actors now wage asymmetric wars against the nation state. Even states have either directly or indirectly resorted to asymmetric, proxy wars. A glaring example is that of the proxy wars waged by Pakistan against India. Such conflicts are difficult to deal even by powerful militaries. They are waged by shadowy groups which are prepared to kill civilians indiscriminately, they are difficult to track, they use unconventional methods and easily melt away in local communities. The modern day terrorism and insurgencies are prime examples of this asymmetric warfare. Backed by state agencies, proxy wars also offer the advantage of deniability.
Other intra-state security challenges faced by states today include religious extremism leading to violence, communal tensions, ethnic strifes, drug trafficking, smuggling organized transnational crime etc.
Globalization has facilitated movement of people, ideas, goods and services across national borders. However, the flip side of globalization is that it has also led to migration, cyber crimes, money laundering, pandemics, trans-national criminal networks, and other types of threats. Some experts argue that climate change is leading to increased frequency of natural disasters. These will, in turn, promote mass migration and movement of internally displaced people. Rapid urbanization will generate its own tensions and strife.
BLURRING OF INTERNAL AND EXTERNAL SECURITY THREATS
In the changing security scenario, it is becoming increasingly difficult now to separate internal and external threats to security. Internal cohesion and strength bolsters a nations’ overall strength, deters its adversaries, enhances the morale of its citizens and safeguards its national security. A nation in chaos cannot be secured from external threats. Why is internal security such a vital element of national security? Firstly, internal instability or strife tempts adversaries to intervene in domestic affairs and weaken the country.
Second, some types of threats like terrorism defy classification. They may emanate from external soil but cause violence and disruption inside the country. Consider the case of terror attacks in Mumbai on 26/11. Should they be classified as an internal security problem or an act of war against the nation?
Third, threats like trans-national organized crime, drug trafficking, cyber crimes, money laundering and pandemics may arise in foreign lands, but also need to be tackled within the boundaries of a nation state. For instance, disruption of the country’s communication network or civil aviation as a consequence of a cyber attack, will have to be tackled mainly within the state’s boundaries. Should it be classified as an external or internal threat?
While effective policing has always been crucial in times of or interstate wars, it has become even more important in dealing effectively with present day security challenges. Modern day conflicts cannot be handled by militaries alone. Often, it is the police and para-military forces which have to fight them either directly or with the aid of armed forces. Sometimes, armed forces may execute a major operation, as in Afghanistan and Iraq, but finally effective policing becomes critical to achieving the ultimate objectives of war.
LIMITATIONS OF ARMED FORCES
Armed forces are created and meant to fight an external enemy. They are trained to kill, decimate and destroy. Militaries are not appropriate for handling internal threats and many of the non-conventional threats to national security. Success in countering these threats can be ensured either through effective policing or coupled with the support of Armed Forces. Excessive involvement of the military in managing internal security is highly problematic. As mentioned earlier militaries are not trained to fight among people. They are unable to exercise discrimination. Fighting amongst once own people raises serious moral dilemmas for soldiers. Excessive involvement of military in civil strife can exhaust the armed forces and blunt their efficacy. Their engagement for extended periods, as in Jammu and Kashmir and in the North Eastern region can tire them out and reduce their efficiency. Thus the effectiveness of the armed forces in fighting an external enemy is seriously diminished in the process. Heavy reliance on armed forces weakens civilian authority. Their frequent use enhances their power and influence in the polity. This enhanced power can become a threat to democracy as we have seen in the cases of Pakistan, Bangladesh and other countries which have suffered military coups. The extent of democratic control is inversely proportionate to the democratic governments dependence on the armed forces. The situation gets compounded when armedforces are used for purposes they are not meant for like internal disturbance or settling political disputes. The Military is the ultimate resort of the state and it should be called in to act only when no other state agency can be effectively deployed. Finally, if the armed forces also fail, the state itself can collapse.
EFFECTIVE POLICING FOR NATIONAL SECURITY
The ultimate guarantee of national security is its comprehensive national strength. Viewed comprehensively national power includes economic and technological strength, military power and internal cohesion. At least two of these elements depend heavily on effective policing i.e. internal cohesion and economic strength. National economy cannot flourish without internal stability and order, and effective enforcement of laws. Nor can businesses and other activities develop without internal cohesion. Effective policing is thus crucial to both internal security and economic growth.
The principal threats that India faces today in the domain of internal security is in the North East, J&K and Naxalism affected areas. Terrorism a continuing threat and terrorists have struck India’s cities in different parts. Other threats emanate from ineffective border management and communal violence.
While the armed forces have been used in J&K and the North East to tackle the problem of terrorism and militancy, their prolonged deployment has been problematic. Despite their best effort, it has led to allegations regarding human rights violations. Armed forces are regarded with fear and perceived as occupation forces. They make it difficult to provide a sense of security to alienated groups.
Many of the national security challenges thus can be met much more effectively by effective policing. However, our police forces are ill-equipped to deliver effective policing due to a variety of factors. What are the measures required to make effective policing possible? Some suggestions are offered below:-
i) The police population ratio must be improved in a time bound manner.
ii) Police forces should be insulated from political interference and politicization.
iii) Police reforms must be implemented in right earnest and in a time bound manner.
iv) Service conditions of constabulary and lower ranking officials should be improved.
(v) Police training and capacity building may be given special emphasis. Particular attention may be given to sensitizing them in regard to human rights. Community oriented policing should be encouraged.
vi) Police forces should be rapidly modernized to enable them to face modern day challenges. vii) Finally, strong political resolve, consensus and centre-state coordination will strengthen policing.
Besides the above, specific recommendations for developing effective police forces are offered below covering intelligence, terrorism and border management Intelligence Intelligence is key to effective policing particularly in preventing or dealing with terrorism, insurgency, communal riots, organized crime, mass migrations and other non-traditional security threats. Poor intelligence is a major cause of police failure. There is therefore need to:
1. Improve coordination amongst various law enforcement agencies;
2. Improve coordination between Central and State level agencies and make them seamless; 3. Strengthen HUMINT1 and penetrate various terrorist groups;
4. Enhance coordination amongst various intelligence gathering agencies at all levels. Ensure a strong network of MACs,2 SMACs3 and SIB,4 etc;
5. Enhance TECHINT5 capability and popularize the use of frontier technologies in gathering TECHINT and OSINT6;
Terrorism
Terrorism has become a major challenge of our times and armed forces are normally inappropriate for dealing with terrorism. Following measures are recommended to make India’s counter terrorism apparatus more robust and effective:
1. There should be a consensus between the Centre and the States and among political parties on the strategy to deal with terrorism;
2. Strong and deterrent laws are needed to deal with terrorism;
3. Terrorist financing needs to be choked;
4. National Investigation Agency should be well-equipped and made effective;
5. There is a need to significantly enhance domestic counter-terrorism infrastructure;
6. Police reforms should be speedily implemented;
7. International cooperation to deal with terrorism needs to be strengthened;
Naxalism
Naxalism has become the most dangerous internal security threat. While it requires an integrated response of both development and security. The creation of COBRA7 force at the Central level and special anti-Naxal forces in the affected States, as well as raising 20 CTJW88 CIJW-Counter- Terrorism and Jungle Warfare
Border Management
Our border management needs to be much more effective to prevent cross-border threats. The following measures in the regard are recommended:-
1. Enhance the capabilities of border guarding forces.
2. The Land Ports Authority of India to undertake construction, management and maintenance of ICPs should be set up at the earliest. The integrated check point (ICP) programme should be made robust.
3. The issue of adverse positions and enclaves should be resolved with Bangladesh at the earliest.
4. Illegal smuggling of cattle from India into Bangladesh should be curbed through legalization of cattle trade and other measures.
5. There is a need for better coordination among all agencies involving border management. Border guarding forces should be consulted while devising border area development schemes.
6. The identification of populations living along the borders through the issuance of multi-purpose identity cards needs to be given high priority.
7. The fragmentation among agencies dealing with maritime security should be ended and real-time functional coordination mechanism should be set up. The modernization of coastal police stations should be accelerated.
Effective policing has always been important for national security. In the changing security when the conflicts are being fought among people and when internal and external threats are more difficult to distinguish effective policing has become even more crucial to security.
1 HUM and INTelligence refer to intelligence gathering by means of interpersonal contact as opposed to the more technical intelligence gathering disciplines.
2 MAC-Multi Agency Centre
3 SMACs-Subsidiary Multi Agency Centres
4 SIB-Subsidiary Intelligence Branch
5 TECHINT-Technical Intelligence is intelligence about weapons and equipment used by the armed forces of foreign nations.
6 OSINT-Open Source Intelligence
7 COBRA-Command Battalions for Resolute Action (COBRA), a specialised anti-naxalite force to deal with the situation.
8 CIJW-Counter- Terrorism and Jungle Warfare
* Mr. N.S Sisodia is Director, Institute for Defence Studies and Analysis
