Showing posts with label Indian Army. Show all posts
Showing posts with label Indian Army. Show all posts

Saturday, January 9, 2021

Modernising the Military within Budgetary Constraint

IntroductionIndia’s defence budget has generally been in the range of 2 to 3 percent of its GDP. This includes the expenditure on pensions. Since 2009, defence expenditure as a percentage of GDP has shown a decline (Figure 1). In terms of actual expenditure, however, there has been a year on year increase in the defence budget, as indicated by the graph (Figure 2). While the increase in defence expenditure over the ten year period 2009-2019 has doubled, in real terms it only reflects a marginal increase when inflation is taken into account.  


Figure 1

Figure 2





India’s military modernisation has not kept pace with the requirements of the force, largely due to budgetary constraints. To make up for decades of neglect in a short time frame is a Herculean task, especially as additional budgetary support is unlikely to be made available. There is a view in defence circles, more so in think tanks,  that the defence expenditure should be increased to a minimum of four percent of the GDP for at least one decade, to meet the requirements of the Armed Forces, but that outcome is unlikely to come about. The expenditure on defence, as a percentage of the total Union Budget is about 15 percent, and any further increase can only be at the cost of other sectors, which are equally vital for the welfare of the country. Either other means would have to be found to augment the budget or ways and means have to be found to optimise what is available.


With limits on what can be spent on defence, we need to look at optimising efficiencies. A great deal can be achieved through a radically different approach to the indigenisation effort, better and faster decision making for defence acquisitions, and through revitalising defence manufacturing, both in the public and private sector.


Indigenisation


Technology is an enabler, and this is one field where India has to push hardest. As of now, India is behind the technological curve in many defence related fields, and has to play the catch up game. A dual approach is required. One, getting to world standards in existing technologies and two, getting on board, as far as future technologies are concerned.


India’s space programme is a success story and this needs to be replicated in other sectors. The Indian Regional Navigation Satellite System (IRNSS), also called NavIC, (Acronym for Navigation with Indian Constellation) is now operational and has been recognised as a component of the World-Wide Radio Navigation System (WWRNS) by the Maritime Safety Committee of the International Maritime Organisation (IMO). NavIC covers India and an area 1500 kms around it and provides accurate real-time positioning and timing services. This has both military and civil applications. The US Congress formally acknowledged India’s NavIC global navigation satellite system (GNSS) to be an “allied system” in its finalised 2020 National Defense Authorization Act (NDAA). The US military and government users can now utilise NavIC along with the US Global Positioning System (GPS), QZSS, and Galileo. Presumably, it will also allow similar privileges for India’s military and government to formally utilise GPS. The advantages are huge. More importantly, the commercial applications are immense, which can offset the cost of the establishment, and over time become a profitable venture. Niche technologies like Artificial Intelligence (AI) and robotics , must hence be modelled on the lines of ISRO.


Another success story is in missile development. India has developed a range of strategic and conventional missiles, under the Integrated Guided Missile Development Programme, which began in the 1980s. Despite being put under sanctions in 1989 by the Missile Technology Control Regime (MTCR), which led to the denial of certain technologies, India successfully developed indigenously all the restricted components denied to it by the MTCR. While certain missiles are still being imported by India, like the Russian, French and Israeli BVRAAMS (Beyond Visual Range Air to Air Missiles), these will soon be replaced by missiles made in India like the Astra, which is already fitted on the Su 30 Mk 1 aircraft and are now being tested on the Tejas. With export curbs on weapons and platforms being eased, India hopefully will start exporting advanced weapon systems like Tejas, helicopters and missiles, to achieve the target set by the Prime Minister of weapons exports of USD 5 billion by 2025. To this can be added small arms which have a wide market. Export of the recently inducted Joint Venture Protective Carbine (JVPC), which is now being introduced into service could be considered.


Decision Making


Decision making on defence deals in India has been slow and tardy which has exponentially raised the cost of military equipment and delayed acquisition of critical systems. The saga of the Rafale fighter aircraft is a case in point, wherein after years of effort, the deal was scrapped at the last moment in 2014. Later, it was left to Prime Minister Modi to make an executive decision to buy 36 aircraft off the shelf, as a strategic imperative. Time delays and cost overruns have cost the nation dearly, both in terms of operational capability as well as financial outflows. Unfortunately, the Rafale case is not an exception, but rather the norm in defence acquisitions.


In the Army’s modernisation process, the artillery is finally looking up. But here too, we have seen many twists and turns which have led to exponential increase in costs and impacted on operational capability. The Bofors scam saw the supplying Swedish firm being blacklisted in India. But the gun itself was an excellent piece of equipment which later proved its worth in the Kargil War. India had paid for the technology transfer and had the blueprints to manufacture the gun, but failed to do so. It took three decades before the Army got to acquiring the next gun for the artillery—the M777 Howitzer from the US. This was folly of the highest order. Had we manufactured the gun in the 1980s itself, it would have hastened the modernisation of the artillery by at least two decades at a much lower cost. We must not repeat such follies again. The manufacture of an advanced version of the gun, called Dhanush is only now under production and the Army has placed an order for 114 guns.


The army’s search for a 155 x 52 mm Towed Howitzer finally culminated a decade back in two vendors vying for the same. Israels’ Elbit for its ATHOS 2052 howitzer and the French Nexter, for its Trajan gun. Elbit was in partnership with Bharat Forge and Nexter with Larsen and Toubro. In 2019, Elbit won the contract. But in the meantime, DRDO had also got in the act and made the Advanced Towed Artillery Gun System (ATAGS), which is currently under the last stages of trials and has 95 percent indigenous content. For manufacture of ATAGS, the DRDO is partnering with Bharat Forge Limited, Mahindra Defence Naval System and Tata Power Strategic Engineering Division.


There appears to be a lot of confusion in the thought process, both in the artillery directorate and in the MoD, over the way ahead. We have two guns now, the indigenous ATAGS being priced at Rs 15 crore and the ATHOS at 10.5 crore, with Bharat Forge a partner in both. Faster decision making would have resulted in India already having a few hundred howitzers from Elbit, and the indigenous manufacture of the same could have started by now. This is one area which needs great reform. A time bound acquisition procedure is an imperative and we need to build the eco-system for the same.


The second is the productivity factor of the public sector work force. While it is appreciated that certain costs must have been sunk in by DRDO in research and development of ATAGS, it cannot lead to such a wide price differential. The same occurred also in the Rafale fighter aircraft deal, wherein the fighter jets to be manufactured in India were projected at a higher cost than the ones bought in full built condition from Dassault. The figure below gives a comparison carried out ten years ago between a private sector company (Ashok Leyland) and a public sector company (Vehicle Factory Jabalpur) in terms of cost and worker productivity. The situation across the board is not too dissimilar, and calls for great reforms in the public sector entities and in the working of the Ordnance Factory Board (OFB).



Indicator

VFJ

AL

VFJ

AL


2008-2009

2008-2009

2009-2010

2009-2010

No of Employees

4809

11938

4368

13,662

Output per Employee

0.15

0.49

0.17

0.50

Per unit cost of Employee

3.83

1.04

4.79

1.04



An Acquisition Methodology


A look into advanced weapon systems and platforms acquired recently or which are in the process of being acquired indicates that huge budgetary support is required for the same. The S 400 deal with Russia comes at a cost of Rs 40,000 crore. The deal for 36 Rafale fighter jets from France cost India Rs 59,000 and weapon acquisitions from the US, largely for attack helicopters, strategic lift aircraft and artillery guns also came at a heavy price. Add to this the acquisition of missiles and other weaponry from Israel and the overall cost of defence imports gives a very grim picture. Reversing this trend will take time but that would depend on developing indigenous manufacturing capability in multiple sectors.  


It would be worth considering buying into technology for creating an eco-system which at present does not exist. An example is in the aviation sector. Brazil’s Embraer was up for sale and Boeing was in talks with them for the last two years for purchase of 70 percent shares of the entity for USD 4.2 billion. The deal however fell through in April 2020. What happens if India was to get into such a deal and buy out the Embraer which manufactures single aisle aircraft. As of now, Hindustan Aeronautical Limited (HAL), a Defence Public Sector Undertaking (DPSU), is the only major entity in the country in the aviation sector. For the aviation industry to come of age in India, the country needs to build its own passenger aircraft. So, if an Indian corporate acquires Embraer, backed by the government, it would give a huge boost to the aviation sector. Government support would be required to make it a leveraged buyout (LBO), enabling the banks to be the lenders for the deal. By 2040, India would need at least 2,300 such aircraft, at a cost of USD 320 billion. Indigenous manufacture would create tremendous economic opportunities as well as an indigenous eco-system as also provide strategic benefits. Starting from scratch to build such aircraft would take decades of effort and would mean diverting precious resources to the effort. LBO’s is an option India must seriously consider. We would need to change our operating methodology to execute such deals which can give great payoffs over a period of time. Buy outs can be considered for other sectors too, like semiconductor manufacturing. This involves front-end fab manufacturing and the back-end assembly, including packaging and testing. India has done well in design and verification for the semiconductor industry. However, it continues to import 100% of the chips, memory and display. The cost of imports of semiconductor chips alone is a staggering USD 10-12 billion every year.


Conclusion

While financial outlays are important, much can be achieved in military modernisation though improved acquisition procedures, informed decision making, improved productivity of the public sector work force, co-opting the private sector in a big way in the manufacturing process and by creating a business friendly eco-system. We also need to shed our ideological chains with respect to exports of weapons and platforms. Thankfully, this process has begun. Most importantly, we need to have a clear vision of the future and plan accordingly. Much can still be achieved with what we have, should we set our minds to do so.

Monday, December 14, 2020

The War, The Surrender and a Rescue Mission

The War


It had taken just under a fortnight to vanquish the Pakistani military which saw the surrender of 93,000 Pakistani soldiers. The Liberation War of 1971 had officially begun soon after the Pakistan Air Force carried out a preemptive raid on Indian air bases on the evening of 3 December, but the Mukti Bahini had been active for the past many months inside East Pakistan, harassing and attacking the Pakistani security forces, forcing them to cover their flanks and rear and allowing them no rest or respite. Eastern Command had initially set up eight training camps for the Mukti Bahini and these were later increased to eleven, of which one camp was purely for officers. The Indian army had been accorded approval to attack Pakistani positions within 10 miles of the border and these attacks had commenced by end October. Fierce battles were fought in Dhalai, Atgram, Garibpur, Shamshernagar and Hilli amongst others. On 21 November, two Pakistani F-86 Sabre jets were shot down by Indian MiG 21 Fighters when they intruded into Indian air space and their pilots were taken prisoner, marking the first aerial combat between India and Pakistan since the 1965 war.


With the official outbreak of war, the Indian Army went on an offensive on four thrust lines. From the West, the newly raised II Corps under General Raina made a thrust towards Jessore. In the North-Western sector, XXXIII Corps under General Thapan moved along the Hilli-Gaibanda axis to cut the area into two. In the North-Eastern sector, 101 Communication Zone moved along the Jamalpur-Tangail axis towards Dhaka and in the South-Eastern Sector, IV Corps under the indomitable General Sagat Singh was tasked to contain Sylhet and then move to capture Chittagong.


The main offensive commencing in the early hours of 4 December went as per plan, with the Indian forces bypassing cities and moving swiftly towards their objectives. It was however left to the genius of General Sagat Singh to bring the Pakistani forces to their knees. Sensing an opportunity, he used the helicopters under his command, to make a brilliant crossing of the Meghna River, which altered the course of the war. The para drop of 2 Parachute Battalion at Tangail on 11 December was the Indian Army’s first airborne assault and it shook the military leadership of the Pakistanis. The battalion thereafter, laid an ambush at Poongli bridge and cut off the Pakistani forces retreating from Jamalpur, inflicting heavy losses on them. 1 Maratha of 95 Brigade linked up with this force the next day. 


On 14 December, the IAF carried out a precision attack on the Governors house, just at the moment when the Governor was holding a high level meeting. The Governor in a panic resigned and thereafter took shelter in the Intercontinental Hotel, which had been declared a peace zone by the UN. That was the end of the government. That evening, Lieutenant General Niazi and Major General Farman Ali, who was a senior military advisor to the government, went to see the American Consul General, Mr Spivack, with a ceasefire proposal which broadly entailed a ceasefire under UN, handover the government to UN, withdrawal under UN, no trials and no mention of India. This of course was rejected by India.


By the evening of December 15, the noose had further tightened around Dhaka. 95 Brigade was at the Mirpur Bridge over the Bhuriganga River and early next morning was at Kurmitola. IV Corps was also knocking at the gates of Dhaka, with 311 Brigade close to area of Gulshan Model Town next to Dhaka Cantonment and 301 Brigade in the area of Adamji Jute Mills in Narayanganj. The Pakistani Army in Dhaka was now hemmed in.


The Surrender


From the early part of the morning of 16 December, the atmosphere all across the war zone in East Pakistan was electric, in anticipation of the surrender of the Pakistan Armed Forces. A ceasefire had come into effect by midday and at 2 pm, the Army Commander, Lt Gen JS Aurora along with Air Marshal HC Dewan of Eastern Air Command and Vice Admiral Krishnan of the Eastern Fleet landed at the Agartala airfield. They were received by GOC IV Corps, Lt Gen Sagat Singh and thereafter, the group accompanied by a bevy of reporters moved in ten helicopters—five Alouettes and five MI 4—to Dhaka airfield.


Earlier in the day, Maj Gen JFR Jacob, the Chief of Staff, Eastern Command, had met Lt Gen Niazi at his headquarter and given him the terms of surrender. The meeting had been arranged by Maj Gen Nagra, the commander of Eastern Command’s 101 Communication Zone Force. He had contacted Gen Niazi a day earlier and also met him in the morning of the 16th. His two brigades, 95 and 167 Mountain Brigades, had moved up to the Dhaka cantonment and this force had been further strengthened by a squadron of PT 76 tanks. The tanks had been moved forward by General Sagat Singh as an additional precaution, to ensure enough physical evidence of the military strength of the Indian forces in Dhaka.


The helicopters with the Indian commanders and a bevy of reporters landed at Dhaka airfield and were received by their Pakistani counterparts—Lt Gen AAK Niazi, Rear Admiral Mohammad Shariff and Air Commodore Inamul Haq. The victors and the vanquished then drove to the Ramna Racecourse, five km from the Tezgaon Airfield. for the surrender ceremony. Bangladeshi flags fluttered atop all the rooftops and the streets swarmed with millions of people waving flags and cheering to the cries of ‘Joi Bangla’. 


A table and two chairs had been procured from Gen Niazi’s office. General Aurora was given a Guard of Honour by a hurriedly arranged mix of available Pakistani troops, with Gen Niazi’s ADC, commanding the motley contingent. The two commanders sat down and the surrender document was placed before Niazi. He read the same and then signed all the five copies. General Aurora then signed the documents. He asked Niazi for his pistol and the same was handed over. Then General Niazi’s badges of rank were removed which marked the end of the surrender proceedings. The crowd in the Ramna ground was delirious with joy. Dhaka was now the free capital of a free country.


The Rescue


While the Pakistani forces had surrendered, the family of Sheikh Mujibur Rahman was still under the custody of the Pakistani forces. At nine in the morning of 17 December, Maj Ashok Tara of 14 Guards was summoned by his Commanding Officer Lieutenant Colonel VN Channa. He was told that Sheikh Mujibur Rahman’s family is under house arrest and his wife and children were being guarded by a contingent of Pakistani troops. “Your job”, the CO told Maj Tara, “is to get them back safely”.


Moving quickly to the area with his troops, Maj Tara found the house guarded by trigger happy sentries who were blissfully unaware of the surrender that had taken place a day earlier. A direct assault could have caused bloodshed inside the house, so Maj Tara walked up to the gate alone and unarmed. The sentry had his finger on the trigger but he held his fire. Over the next half an hour or so, Maj Tara convinced the captors to surrender their arms and a great deal of bloodshed was avoided. Most importantly, Mrs Mujibur Rahman and her daughters Hasina and Rehana, along with some other relatives were safely rescued. That was indeed most fortunate as Sheikh Hasina is now the Prime Minister of Bangladesh. 


Post Script


The valour of the Indian Armed Forces has never been in doubt, but an account by Sydney Schanberg, the Pulitzer winning American journalist as published by the New York Times post the Liberation War is a great tribute to the Army. This is what he wrote:

“I don’t like sitting around praising armies. I don’t like armies because armies mean wars. But this (Indian) army was something. They were great all the way. There never was a black mark…I lived with the officers and I walked, rode with the jawans-and they were all great. Sure, some of them were scared at first-they wouldn’t be human if they weren’t. But I never saw a man flinch because he was scared. There was tremendous spirit in the Indian Army and it did one good to experience it. I have seen our boys in Vietnam-and this army was different. Their arms and equipment aren’t as good-but what they had was used with effect and boy! could they improvise. I saw heavy recoilless guns carried on shoulders, big guns pushed across marshes like ox-carts, by jawans, villagers, officers, everybody was in it together and they were perfect gentlemen. I never saw them do a thing wrong not even when they saw just how bestial the enemy had been.”


Published in Chintan: 16 December 2020

Tuesday, July 28, 2020

IF IT AIN’T BROKE DON’T FIX IT


Response to those who want to change the Indian Army's regimental system


A lot of attention continues to be spawned at periodical intervals on the composition of the Indian Army, with subtle suggestions that the Army is casteist and racist in its origins—qualities not compatible with a modern Indian State. Such allegations can be dismissed off hand, but the manner in which such slurs continue to be cast, raises doubts on the motives of those trying to peddle a particular type of narrative.


Recently, Caravan magazine published an article on 01 March 2020, titled ‘Beneath the Uniform’—The casteist and racist origins of the Indian Army’s recruitment policies, authored by Sabyasachi Dasgupta, an Assistant Professor in Visva-Bharati University, Santiniketan. The author alleges that racist and casteist assumptions of the British era still continue to have a significant influence on the composition of the Indian Army and goes on to conclude; “while the India State is often hailed for its ‘unity in diversity,’ a look at the Army’s community based deployments indicates that the state might be harnessing the social divides to maintain its control”.


Individuals not well conversant with the military ethos often tend to make sweeping statements that are wide off the mark. A test of a military must be predicated on its stated role, which in the Indian context is to protect the nation from external aggression and internal disorder. This forms the very raison d’être of its existence. If shortcomings are found here, then most certainly questions need to be asked which could inter alia include all aspects of the functioning of a force, including its composition. If there are no shortcomings, then the motives of those raising frivolous issues must be placed on the scanner. So let us examine the performance of the Indian Army, since independence.


Soon after independence, the Indian Army found itself embroiled in a war in Jammu and Kashmir, to counter Pakistani aggression. In perhaps one of the most brilliant actions, troops were airlifted to Srinagar and the invaders were stopped in the nick of time on the outskirts of Srinagar, from where they were gradually pushed back till a ceasefire was accepted by the Indian government, bringing that war to an end. Since then, except for some minor changes to what was then called the Ceasefire Line and is now called the Line of Control, the status quo has been maintained. Pakistani aggression was again foiled in the 1965 war. Six years later, in the Liberation War, the nation achieved its biggest victory in millennia when the Pakistan Army in its eastern Wing surrendered and a new nation, Bangladesh was created in December 1971. Pakistan suffered a further humiliation in 1999, when it was forced to vacate its aggression on the Kargil heights.


It is true that the Indian Army suffered a setback in 1962, in its short border war with China, but that had little to do with the troops and was largely the consequence of political shenanigans, weak logistic infrastructure, poor equipment and inept political, bureaucratic and military leadership at the highest levels. It must be noted that it was the Indian Army which carried out the political integration of the country with swift actions in Junagadh (September 1947), Hyderabad (Operation Polo - September 1948), and the Liberation of Goa, Daman and Diu in December 1961. It is the Indian Army which has held the fabric of the nation together and quelled insurgencies in Northeast India, Punjab and Jammu and Kashmir, which is still an ongoing process in some areas. Obviously, if the Army has so effectively succeeded in its mandate of protecting the country from external aggression and internal disorder, then it is based on a sound organisational structure which has stood the test of time. Why then call for a change of such a system? Why is there a disquiet in some quarters, which would like to portray a negative narrative? Or are silent forces at work, deliberately trying to sow dissension within the rank and file of the Army for certain  ulterior motives?


In each and every deployment of the Indian Army since independence, either for conflict resolution or for any other purpose, the consideration has never been the caste or class composition of the unit. That is immaterial to the requirement of the task and to suggest otherwise denotes ignorance of the functioning ethos of the Army and indeed of the Armed Forces of India. To suggest that while dealing with internal security situations, the Army deploys troops which are from a different region or ethnicity is patently false. As an example, as part of its counter-terrorism effort in J&K, troops from all infantry regiments have been deployed since the last three decades. The same goes for quelling the insurgency in Punjab and in the Northeast. Whether troops are from the same area or from other areas, does not form part of the deployment philosophy of the military commanders. Hence, statements made that in cases of conflict and unrest, the Army deploys a regiment of a community from a different region or ethnicity to control the violence, pitting one people against the other, is patently false and malicious. On the contrary, in cases of internal disorder, the presence of the Army is welcomed by the people, as the public knows that the Army functions in a non-partisan manner. The deployment of troops is based on availability and location of the units and not on extraneous considerations such as the caste and class composition of the troops. In fact, such a thought is never even entertained.


The British Indian Army may or may not have had the concept of what is called the martial races. Post independence, however, within the military fraternity, no such concept existed. It is a well known fact in the Army that the performance of a unit is not based on the caste or class composition of its constituents, but on its leadership, training and morale. The concept of martial races, even if it was propagated by the British for their own purposes, was never a matter of consideration for enrolment of personnel in the Indian Army. So why did the Indian Army, post independence, continue with the British regimental system for its infantry? The answer is simple. The character and composition of the existing regiments was not changed, because fighting units thrive on tradition. Many units are centuries old, with a glorious past, evoking a sense of pride. In addition, the Infantry units at the time of Independence represented a cosmos of the Indian nation, as troops came from all parts of the country. There really was no sense in changing a system which had  worked so well in two World Wars, simply to appear to be ‘politically correct’. It is also worth noting that Infantry is the arm that closes in with the enemy in close combat. It requires a very high of level of cohesiveness, camaraderie and esprit de corps which takes years to build and to develop. That is why, when units go into battle, the prime motivation is the ‘izzat’ of the battalion, which makes men go beyond the call of duty for mission accomplishment. Unlike other professions, a nations armed forces are the final bastion. If the bastion falls, the nation falls and will slip into subjugation. Indian history for over a millennia is testimony to the fact that India was subjugated because it had lost the military edge to foreign invaders. 


But the above notwithstanding, recruitment to the army, post independence, was open to all citizens of India. Region wise recruitment however remained the norm, because it was administratively convenient. Getting together a host of people from a particular area and grouping them together for training and administrative needs, made a great deal of sense to both the military hierarchy as also to the troops concerned. Here, stress needs to be laid on the fact that recruitment did not discriminate based on caste. For example, recruitment in the Dogra Regiment was open to all residents of the geographical area of Himachal Pradesh, and parts of Punjab and J&K, regardless of their caste. Similarly, the same could be said for other Regiments of the Infantry such as Bihar, Punjab, Maratha, Madras, to name but a few. However, there were Infantry regiments like the Brigade of the Guards, where recruitment was from across the country as far as the regiment was concerned. But the units still had troops from a particular geographical area. As far as the logistic support units are concerned, which from a sizeable chunk of the Army, the recruitment base remained all India.


Regardless of the composition of units, the Army functions as one team. The Armed Forces are the only organisation in India, where caste, class or religion is not a factor. When units operate as part of a brigade or higher grouping, they are bound by the soldierly code of ‘nation first’. If one wishes to see a totally homogenous society, free of prejudice, then that can be witnessed in India’s Armed Forces. This culture is imbued in the ethos of the Armed Forces, which is why the nation trusts its men and women in uniform. 


The Armed Forces rightly rejected the call for reservations within the Forces, as recruitment to the Force is based on merit, with no consideration of class, caste or religious affiliation. Every person who enters the Force, does so on merit. Yes, the Army does have regiments, based on historical factors, such as the Sikh Light Infantry and the Mahar Regiment. But that does not exclude those who have been historically discriminated against, in joining other regiments also. For example, in the Dogra regiment, the recruitment base of troops is from a particular geographical area, but caste is not a consideration, which is why every caste is represented in the Regiment. The same goes for regiments like the Garhwal Rifles and others, which are also based on geographical contiguity and not on caste lines. The underlying principle for joining the Armed Forces remains constant; the ability to do the assigned task. Merit remains the sole criteria.


It has been claimed that the regimental system was created as a ploy by the British rulers to prevent any formidable coalition against them as occurred in the mutiny. However, geographical contiguity has been a guiding principle for recruitment by armies across the world as it makes for ease in administration. For a country as diverse as India, with its multiplicity of languages, customs and food habits, it makes far greater sense to group people on the basis of geographical contiguity. In the case of the Indian Army, the Regimental System has never been divisive. On the contrary, it has led to greater homogeneity at the unit level as also at the level of field formations where the wider intermingling with troops from other regions takes place. It is the strong military ethos and sense of nationalism that has kept the Indian Army free from the virus of caste, class and religious polarisation. Perhaps there is a lesson here, that could be imbibed by people all across the length and breadth of India.


Finally, many people continue to express concerns on what they perceive to be the unequal representation of India’s multi-faceted society in the officer cadre of the Armed Forces. This is perhaps the biggest canard that has been spread by people who are either misinformed or who have a purpose in spreading such misinformation. Selection to the officer cadre is open to all Indians, and is based on merit. Over a million people every year apply for a commission in India’s Armed Forces, but most are weeded out after the initial written tests conducted by the UPSC. This is then followed by a grinding process of going through the Services Selection Board and finally through a medical board. The merit list is prepared thereafter, and finally, on an annual basis, we have about 1500 officers selected for training. The entire process is very transparent and the sole criteria for selection is merit. The system has stood the test of time for its impartiality and each batch which is commissioned, is in a sense a reflection of the composite nature of India’s society. The officers of India’s Armed Forces are true leaders in every sense of the word, imbued with the code “The Safety, Honour and Welfare of your country, comes first, always and every time”. This selfless service goes beyond the narrow straitjacket of caste, class or religious differentiation, so common in other organisations. This is what has enabled India to win its many wars. This is what has kept the country united and as one entity.


Let us not then fiddle with a time tested system which has served the nation well, simply to pander to the ego of some self professed know alls, who unfortunately have never served in the Forces and have little knowledge of their functioning. It would be far better if such people devote their time and energy in creating a more homogenous society in the country, which remains riven and split on caste and communal lines. They could learn a thing or two from how the military conducts its affairs instead of trying to alter a system which has stood the test of time. The sage advice, “if it ain’t broke, don’t fix it,” must be heeded, especially in matters pertaining to India’s Armed Forces.


‘Beneath the Uniform’ - The casteist and racist origins of the Indian

Army’s recruitment policies

By Sabyasachi Dasgupta (assistant professor at the department of history at Visva-Bharati University, Santiniketan)

Published in Caravan Magazine - 1 March, 2020

THE PRESIDENT’S BODYGUARD—a unit of the Indian Army—is considered

one of the most prestigious postings within the armed forces. In 2018, one Gaurav Yadav from Haryana’s Revari district filed a public-interest litigation in the Delhi High Court, alleging that the recruitment policy of the President’s Bodyguard discriminated by caste. The unit, as Yadav correctly pointed out, only recruits from three castes—Rajputs, Hindu Jats and Sikh Jats. According to Yadav, these three castes are being given “preferential treatment” to the detriment of other citizens of the country. A bench of the Delhi High Court, hearing the petition, asked the defence ministry and several senior army officials to file their counter affidavits on the issue by 9 May 2019.

Both the army and the government have exceeded the deadline, and are yet to file their responses.

This is not the first time the army’s recruitment policy has been challenged in

court. In 2012, IS Yadav, an Uttar Pradesh-based doctor, filed a petition in the Supreme Court, seeking an end to recruitment in the army on the basis of caste, region and religion.

“In the army alone there are caste, religion and region-based regiments such as the Jat Regiment, Sikh Regiment, Mahar Regiment, Gorkha Rifles, Garhwal Regiment, Dogra Regiment, etc,” Yadav’s petition said, “and hence recruitment to these regiments is primarily based on caste, region and religion.”

The petition also questioned the existence of two separate regiments for Sikhs—one for Jat Sikhs, and a different one for Mazhabi and Ramdasia Sikhs,

who were formerly considered untouchables. The petitioner urged the court to end discrimination in recruitment to the army and to frame a new hiring policy

for the force.

In its response, the army said that it did not recruit on the basis of caste, region and religion, but it grouped recruits according to their communities for “administrative convenience” and “operational requirements.” The Supreme Court quashed the petition, saying that it did not want to “rock the army’s boat.”

The Indian Army’s own admission that caste-based stratification is necessary for “administrative convenience” gives a glimpse of the central role caste and identity play in the functioning of the force. In its organisation and composition,

the army still closely resembles the pre-Independence British Indian Army. The British concept of “martial races,” drawn from India’s own caste traditions, declared some communities “martial” and others incapable of fighting. This theory—with its racist and casteist assumptions—continues to have a significant influence on the composition of the Indian Army. The history of the British Indian Army constitutes necessary context to understand the identity politics in India’s armed forces today.

THE BRITISH INDIAN ARMY was in reality three armies until 1895. Each of the Bengal, Madras and Bombay Presidencies had its own army, and each force had a different caste dynamic.

The Bengal army, set up by the East India Company in 1756, was dominated by upper castes. Its infantry units, besides a small number of Ahirs and Yadavs,

mostly recruited upper-caste Hindu peasants from modern-day eastern Uttar Pradesh and Bihar, referred to as Purbaiyas. Serving sepoys helped in recruitment, as they were encouraged to bring back potential recruits from among their relatives and friends.

Thus, the Bengal army functioned like an upper-caste club, where ties of clan and neighbourhood took centre stage and high-caste rhetoric was endemic. The sepoys claimed a certain amount of leeway in matters of religion. A high-caste

ethos pervaded the army and, in certain instances, sepoys refused the call of military duty if it conflicted with their religious beliefs. For example, sepoys

could refuse overseas service if it involved sea travel, which many dominant- caste Hindus believed would cause one to lose caste status. A culture of

conditional obedience evolved, where the high-caste sepoy was ready to render obedience as long his notions of religion and caste were not violated.

The dominance of upper-caste sepoys in the Bengal army was punctured somewhat by the induction of Gorkhas in the 1830s and Sikhs in the 1840s. Both communities were destined to play a central role in the post-1857 colonial armies. Nevertheless, high-caste domination continued to be a cardinal feature of the Bengal Army till 1857.

In contrast, the army of the Bombay presidency, despite the presence of a large

number of Purbaiyas, gave short shrift to religious or caste sentiments if they were used as a bargaining chip to evade military duty. One probable reason for the Purbaiyas’s inability to extract concessions from the Bombay army was that, unlike in the Bengal army, they did not constitute a brute majority there. The Bombay army had a diverse composition, and recruited from a large array of communities, including Dalits from the Mahar community. Mahars would play an important role in the battle of Bhima Koregaon in 1818, an event that has contemporary reverberations.

The lack of numbers was not the only reason for Purbaiyas’ diminished leverage in the Bombay army. The force’s policy differed significantly from that of the Bengal army. While its leaders professed respect for the caste sentiments of the sepoys, they were uncompromising in their belief that caste could not be

allowed to come in the way of military duties. All efforts of the Purbaiyas towards extracting some concessions in this respect were resisted firmly. The pre-Mutiny Bombay army was one of those rare colonial institutions where the dynamics of caste did not assume a domineering role. This policy of keeping caste beliefs at bay was reasonably successful. While nearly the entire Bengal force revolted in 1857, only five out of the 29 regiments of the Bombay army mutinied. Thus, while the Bombay army demanded unconditional obedience from the sepoy, the Bengal army settled for conditional obedience.

The Madras army adopted a middle ground. In the final decades of the eighteenth century—after an initial period of preferring dominant castes,

including Purbaiyas from the Bengal Presidency—it shifted its focus to recruiting from the middle and oppressed castes, apart from a large number of Muslims. This shift in policy was to avoid conflicts over caste notions. The policymakers of the Madras army also seemed sanguine over the prospects of successfully dealing with the religious sentiments of the Muslim recruits.

In 1806, a major mutiny, driven by dominant castes and Muslims, broke out in the Vellore cantonment. The sepoys were up in arms over an order calling for the strict implementation of a pre-existing regulation banning the wearing of

caste marks. Muslim soldiers, too, had been asked to shave off their mustaches and beards. Matters were further aggravated by the issuing of new turbans, which sepoys found to be too similar to the headgear worn by “half-caste” Portuguese drummers, whom the sepoys detested and looked down upon. The sepoys appealed to the authorities, arguing that nobody would marry their daughters or share food and water with them if the new headgear was adopted.

On 10 July that year, roughly two and a half thousand sepoys broke out in open revolt. The uprising was quelled, with the sepoys suffering heavy casualties. In the aftermath of the Vellore mutiny, discontent surfaced among native regiments in several stations, but any brewing rebellions were nipped in the bud. A potentially major uprising spread over south India, predating the revolt of 1857 by fifty years, fizzled out before it could assume ominous proportions. It is unclear whether the sepoys had the kind of civilian support that was later

witnessed in the 1857 revolt.

The sepoys had a partial victory as the order prohibiting the wearing of caste marks and whiskers on parade was rescinded. The controversial headgear was not issued. The Madras army henceforth concentrated on empowering the middle- and oppressed-caste sepoys. For instance, it awarded palanquin allowances to sepoys who performed gallantly on the battlefield. This privilege of riding a palanquin, which had been the reserve of the elite castes until then,

was a rare honour for oppressed-caste soldiers. Army service thus empowered oppressed castes, giving them a new, distinct identity. The strategy clearly

worked well, as the sepoys in the Madras army remained steadfastly loyal in 1857.

The 1857 revolt was mostly led by units of the Bengal army, which was nearly disintegrated after the conflict. Dynamics of caste and religion were among the multiple factors that spurred the revolt, arguably the greatest anti-colonial struggle of the nineteenth century, which in its initial phase posed a fundamental challenge to the continuance of British rule in India. The tide, however, gradually turned in favour of the British.

AFTER THEIR TRIUMPH, the British brought in fundamental changes in the army. Only a few regiments of the Bengal army were retained, as the British

went about changing the army’s composition. Their initial strategy was to use different castes and communities to balance each other, and to increase recruitment from areas that had been loyal, such as Punjab.

In the 1880s, a new recruitment policy was devised, which came to be known as the martial-race theory. Initially propounded by the British military commander Frederick Roberts, it stated that only a few select communities, such as the Gorkhas, Dogras, Pathans and Punjabis—Muslim, Hindu or Sikh— and a few others in the subcontinent, were to be dubbed “martial castes,” capable of fighting bravely and effectively.

Proponents of the theory gave several reasons why some communities possessed martial qualities and others did not. The only point of agreement among them was that wheat-eating, less-literate peasants from the rural areas

made the best fighters. Some of the proponents of the martial-race theory ascribed martial qualities to advantageous genes, while others stressed ecological, environmental, historical and political factors. What often was not stated was that most “martial” communities had been loyal during the 1857 revolt. According to some historians, the theory appropriated the varna system, and articulated it in racial terms.

Roberts believed that long years of peace in the Madras Presidency had

enervated the Madras sepoy and made him unmartial. He also believed that those who live in colder areas proved to be better fighters. George MacMunn,

another British general, believed in the superiority of Aryans over Dravidians. He believed Aryans had enslaved the original inhabitants and deprived them of

the right to bear arms. Therefore, only communities of supposedly Aryan origin were capable of being martial. MacMunn also believed that the tenets of certain religions, such as Sikhism, made their adherents martial. Many similar beliefs remain alive in the modern Indian army.

Caste played a crucial role in the labelling of communities as martial or non- martial. The dominant-caste Purbaiyas, the original martial class of the colonial armies, were not labelled a martial race because of the near total revolt of the Purbaiyas of the Bengal army in 1857.

Many oppressed castes became the first casualties of the martial-race theory. As the scholar Stephen P Cohen wrote in his 1969 essay “The Untouchable Soldier: Caste, Politics and the Indian Army,” a view was formed that Dalits were by birth and varna “inherently unmilitary.” A series of articles written before Independence in The Pioneer argued: why bother to recruit the “dhobi battalions” if they could not be trusted against the formidable Pathans? Mahars were gradually phased out by the 1890s. Mazhabi Sikhs were also weeded out of the ranks around the same time. The Bhils and several tribes from Assam, many of whom had served loyally in 1857, suffered the same fate. It seemed that proponents of the martial-race theory did not believe the oppressed castes worthy of being martial races.

The First World War saw an incredible demand for manpower. The army

initially tried to meet the challenge by intensifying recruitment from the martial communities. When it failed to recruit enough men, the colonial government reluctantly turned to the communities dubbed non-martial for recruitment. The Mahar regiment was reinstated, as was the recruitment of Mazhabis. But both communities would be demobilised again after the conclusion of the war. Many other oppressed-caste soldiers, recruited during the war, suffered the same fate.

The army’s bias against non-martial communities was made clear by the fact

that their members were rarely posted at the frontlines, and often found

themselves serving in auxiliary branches. The fighting was left to the martial races.

History repeated itself during the Second World War. The enormity of the situation forced army recruiters to grudgingly turn towards non-martial communities. Mahars and Mazhabis were again recruited. The Mahars now had a powerful patron in BR Ambedkar, a member of a national defence board and a Mahar himself. Nevertheless, deep-seated bias ensured that the non-martial communities would not be posted at frontline areas. Units composed of non- martial recruits would invariably be classified as incapable of fighting well, though they were hardly given the chance of proving their mettle. However, this

time the oppressed-caste units were not demobilised after the war.

The post-independence Indian army claims that caste plays a minimal role in its functioning. An order passed in January 1949 by General KM Cariappa, then its commander-in-chief, stated that recruitment to the army would be open to all classes of Indians, irrespective of caste, creed, ethnicity, religion and so on.

However, the ethos of the martial-race theory continued to play a major role, and these races provide the bulk of the manpower to the army. Though most of the regiments raised after Independence have been mixed units, recruited on what the army calls an “All India” basis, the basic composition of the old single- class regiments has been left untouched, even though there have been alterations and additions to the strength of such regiments. The result is that a significant number of infantry regiments are still single-class or fixed-class

ones.

A single-class regiment recruits from one single community or caste. For example, the Sikh regiment is composed solely of Jat Sikhs, while the Sikh Light Infantry recruits solely from Mazhabi Sikhs. A fixed-class regiment recruits from more than one community, but only from certain specified classes. Each battalion of the Punjab regiment typically has two Jat Sikh and two Dogra companies. Similarly, each battlion of the Bihar regiment has two companies of Biharis and two companies of Adivasis recruited from Bihar, Jharkhand,

Chhattisgarh and Odisha.

The all-India regiments raised after Independence can have mixed recruitment and organisation. However, recruitment to these regiments is regional in

nature, to ensure that differences in food habits, language and so on are not overwhelmingly wide. These regiments recruit from a much wider pool and mix troops hailing from different communities. The most high-profile of these new all-India regiments are the Guards regiments, formed in 1949.

The military establishment after Independence has staunchly opposed dissolving caste-based regiments and ending heavy recruitment from martial races. It continues to do so in the ongoing case of Gaurav Yadav. Most of the top generals in the initial decades of Independence, such as Cariappa, KS Thimayya,

JN Chaudhuri and, later, Sam Manekshaw, were firm in their belief that no radical change should be effected in the recruitment policy of the Indian Army. They took a double-edged public position—on one hand, they said that caste- based regiments are needed for efficiency in fighting and argue that people from the same community fight better together; on the other, they claim that the army is now open to all classes, irrespective of caste, ethnicity and religion.

The civilian establishment, out of a desire to not rock the boat, has not interfered much in this strategy. It has, however, tried to diversify the officer corps, which seems more representative of the country’s diversity than the larger body of jawans. But certain groups and communities remain overrepresented among military officers. The civilian establishment has also been steadfast in shooting down any proposal to form new regiments on the

basis of caste or region.

Unlike during the colonial era, oppressed-caste recruits or existing regiments with predominantly oppressed-caste recruits have not been dubbed non- martial and shunted out in the post-Independence army. But the army has stood firm against any attempts to introduce caste-based reservations. When the former defence minister VK Krishna Menon asked Thimayya, who was then the army chief, why the army was not implementing reservations for Scheduled Castes and Scheduled Tribes, Thimayya replied that the army was open to all

Indians irrespective of caste, creed and religion. Thimayya then argued that the

army’s recruitment policy is based “largely on time-tested traditions and kinship.” Despite his reputation for being stubborn, Menon dropped the matter.

For all its denials, the Indian Army does rely on religious and caste traditions to indoctrinate new recruits, particularly in single-class regiments. The new recruit in such regiments is not to merely undergo training in arms, he is also to imbibe the doctrines and the supposedly true traditions of his faith, for his martial qualities are seemingly linked to his religious ethos.

Matters came to a head again in the 1970s, when the then defence minister, Jagjivan Ram, again asked why the army was not implementing reservations in recruitment. Fuming at what he felt was a completely unwarranted, and

dangerous, intervention in army affairs, the army chief, Maneckshaw, asked his deputy adjutant general to reply that when reservations were introduced in the 1950s, a clause in the legislation said that they did not apply to the army.

The underlying logic behind Manekshaw and Thimayya’s refusal to entertain proposals for reservation was very clear. While time-tested regiments composed overwhelmingly of the oppressed castes were valued, and there was no bar to their recruitment in mixed regiments provided they met the required criteria, any provision that seemingly relaxed the norms for entry into the army would be firmly resisted.

Among the oldest critiques of the martial-race theory and single-class regiments came from Ambedkar. In a posthumously published manuscript, he

wrote:

The principle of organisation that was introduced in 1890 is known as the principle of class composition as against the old principle of a mixed regiment. Under the new principle, the Indian Army was organized on the principle of class regiment or the class squadron or company system. This means, in the first case, that the whole regiment is composed of one class (or caste) and in the second case, that every squadron or company is formed entirely of one class. The old principle of recruiting was to take the best men available, no matter

what his race or religion was. Under the new principle, race of the man became a more important factor than his physique or his intellect. For the purposes of

recruitment, the different castes and communities of India are divided into categories, those belonging to the martial races and those belonging to the non-

martial races. The non-martial races are excluded from military service. Only the castes and communities which are included in the category of martial races are drawn upon for feeding the Army.

Ambedkar wrote disapprovingly of single-class regiments. “The reasons which underlie the principle of class composition it is said, ‘are to a certain extent political, as tending to prevent any such formidable coalition’ against the British, as occurred in the Mutiny,” he wrote. “I should have thought that the old system of a mixed regiment was safer.”

Years later, in 1969, Stephen Cohen noted that unlike in the US military, where “caste-based (all-Negro) units were ideologically resented and militarily inefficient,” caste-based organisation finds general acceptance within India. Speculating on for how long such organisation will remain socially acceptable, he wrote, “They will probably remain so until general social disapproval of caste as an organising principle becomes significantly greater, or until a rapid rise in the technological sophistication of the army requires higher educational levels for recruits. Both developments seem unlikely in the next decade.”

Fifty years later, little has changed despite many challenges to caste-based recruitment over the years. The Indian Army continues to support sentiments of caste pride and loyalty, and finds them essential to operational efficiency. In cases of conflict and unrest, it would deploy a regiment of a community from a

different region or ethnicity to control the violence, pitting one people against the other, as the British once did. India is often hailed for its “unity in diversity,” but a look at such community-based deployments indicates that the state might be harnessing the social divides to maintain its control.