Higher
Decision Making, National Security Planning and the Higher Direction
of War are favourite subjects taught at the College of Defence
Management, which prepares defence officers to take on
responsibilities of higher ranks as they rise in the service
hierarchy. They
struggle with the nuances of quantitative techniques, organization
behaviour models and the like and are bombarded with lectures by visiting faculty from the IIMs. However, we are not sure of the
training imparted to our bureaucrats and politicians as they dish
out the decisions taken at higher levels in India!
The
following article by Ranjit Rai, appeared on the front page of
Pioneer of 11th April and we post it for readers to appreciate how
“the higher decision making takes place in India”. The author
has leaned on two recent books written by a former Cabinet Secretary
and Principal Secretary to the PM –– B G Deshmukh and India’s
former Foreign Secretary –– J N Dixit.
His main aim appears to be to highlight that in matters of national
and security importance and higher decision making the Armed Forces are not consulted. In fact
the Accord with Sri Lanka, which India signed in 1987 during Rajiv
Gandhi’s time, had no inputs from the Armed Forces though they
were the most affected party to get the Accord implemented. Op Pawan
from the Military standpoint was a total wasted effort with the loss
of over 1400 uniformed lives.
ORDINARY
MEN IN HIGH PLACES
Ranjit
B. Rai
Two
new books have hit the stores from the stable of Harper Collins,
both replete with juicy anecdotes, opinions, random writings on
extremely crucial policy issues, politics and strategy, by two
senior, respected bureaucrats who reached the pinnacle of service
and subsequently achieved more in civvy street. The writers are two
opinionated personalities in the vein of Brahmanism, often a streak
acquired upon induction into the civil service.
Both
prolific writers in their late 70s, they held high office in the
bureaucracy –– the steel frame of India –– firmly in their
hands. Mr. B. G. Deshmukh’s book, ‘A Cabinet Secretary Looks
Back’, is a recount of his life and views while serving his
home state Maharashtra and the Central Government in New Delhi, in
various capacities. Twice married, his first wife unfortunately died
of cancer in 1973. Deshmukh joined the Indian Administrative Service
as one of its first officers in 1951. Trained by ICS officers like
JD Shukla, SB Bapat and Syed Munir Khan, he served under the
Imperial Civil Service officers like LR Dayal in his early years,
who according to him, looked down upon the IAS.
The
384 pages of Deshmukh’s book are packed with events in his life.
Hailing from Maharshtra, the son of a lower middle class government
servant he rose to become the Cabinet Secretary. He was then called
by Rajiv Gandhi to be his Principal Secretary in the PMO, which also
looked after the PM’s Household. The PM’s household is a beehive
of activities, some of which are referred to in the book. He
continued to serve three Prime Ministers.
After
1991, he worked for the respected house of Tatas, whilst at the same
time profitably running his four-acre farm in Pune. Through the
meandering account of his life, emerges a portrait of a bright and
upright civil servant, who served under doyens like V Shankar, four
chief Ministers of Maharashtra including the pipe smoking V P Naik
in senior capacities, and had brushes with personalities like Capt
Satish Sharma and Gen K Sundarji on policy matters. He was able to
contain them with his no nonsense approach, but confesses that there
were times he was in the dark about several matters like the Indian
Op Pawan military foray into Sri Lanka, the Bofors procurement,
promotions in the Armed Forces and the battle between Vice Admiral
Jain and Ramdas for the CNS post sullied by Rear Admiral Vishnu
Bhagwat amongst others which are recounted in detail. At times he
felt that he was out of the ‘loop’. The ‘loop’, especially
in defence and nuclear matters is not clearly defined in India and
many a time it is explained off as the vibrancy of Indian democracy
and Cabinet Control.
Deshmukh
was the chief coordinator in the PMO and worked with fiery
personalities like T N Seshan who served briefly as Defence
Secretary, Muchkund Dubey, Mani Shankar Ayier, Vinod Pande and Bhure
Lal. He served Prime Ministers Rajiv Gandhi, VP Singh and briefly
Chandra Shekhar. There are occasions when BG Deshmukh has
transgressed the lines of personal confidentiality that a PM hopes
to enjoy with his staff, and BGD reveals some in a haphazard and
repetitive manner. One wonders how a publisher like Harper Collins
gets away with it. My wife tells me, with tongue in cheek, it is
perhaps because the quality of the editorial is of less importance
to the reader than the juicy stories contained within the pages,
which also helps in the sales to a wider public!
BGD
states that Yashwant Sinha, the only IAS officer to hold a Cabinet
position, once came to the PMO during the tenure of the PM, V P
Singh, and informed him that it had been decided that Muchkund Dubey
was to take over from S K Singh as Foreign Secretary. He hints at
the Bihar connection. Deshmukh’s opinion did not prevail even
though he argued S K Singh’s case as a competent FS. He elaborates
his point and paints Dubey as a short-tempered, self-opinionated
man, stating the instance how during a Cabinet meeting Dubey lost
his cool in the PM’s presence, which was followed by a hushed
silence.
He
also writes with pride and in some detail how he childishly resigned
and walked out of PM Chandra Shekar’s office in December 1990,
when Yashwant Sinha abruptly asked him to hand over PMO to Mr. S K
Misra. While bidding farewell, PM Chandra Shekar asked if he could
extend any courtesy to Deshmukh – “Mere Laayak Koi Seva Hai?”
BGD asked permission to join the house of Tata, whilst confirming he
would not be involved with any Government work or lobbying. Though
he felt that the PM had nodded in assent, the permission was denied
on his official application. BGD knew late JRD Tata well and
explains how he persuaded him to accept the Bharat Ratna in 1992,
which JRD almost refused.
The
other book is by the prolific full time writer J N Dixit, who
retired as the Foreign Secretary, in 1994 –– The Makers of
India’s Foreign Policy from Ram Mohun Roy to Yashwant Sinha.
Dixit served as High Commissioner in Sri Lanka during the
controversial military foray OP Pawan in 1987 and thereafter in
Pakistan during those tumultuous years when insurgency raised its
head in Kashmir, before arriving in South Block. His book read in
adjunct with BGD’s book makes for a more complete picture of
India’s higher governance on the external and security front. He
leads the reader from Ram Mohun Roy to Nehru who believed in an
idealistic view of world politics embodied in his radio broadcast in
London on 12 January 1951, “ What we need is a passion for peace
and a civilized behavior. It is not the temper of war that we
want.“ Nehru’s imprint was indelible till Mrs. Gandhi’s more
ruthless approach was brought in. Dixit credits Rajiv Gandhi as the
PM who shed the baggage of the past and the one who fashioned a
deeply different approach.
Dixit
describes India’s Foreign policy as a struggle between two broad
orientations among India’s political and social structures ––
one advocating a western copy and another wanting to hark back to
retaining the Indian ethos. Dadabhai Naoroji, Tata, RC Dutt and Sir
Pherozoshah Mehta were of the first school and Swami Vivekananda,
Bal Gangadhar and Badruddin Tyabji are mentioned as those who worked
to be aloof and independent. Dixit has done a great service to lay
readers, and especially to men in uniform who will need to get more
involved in Military matters of external importance, as India
aspires to a place in the sun.
The
Indian Ocean is of strategic concern to most countries especially
USA, Japan and China for their energy security needs. In both books
the role of the military to contribute to policy are absent, and
Dixit has skimmed over the Sri Lanka Op Pawan when he was a pivotal
figure responsible for the decision to speedily dispatch troops.
Dixit opines that foreign policy, shaped by adopting a middle path
for India, was more moralistic than realistic, and is now waking up
to the West.
The
roles played by individuals like him and those before him, he
claims, attracts less attention, except when they are towering
leaders, and his attempt is to set the record straight. Dixit gives
pen picture achievements of foreign secretaries from Sir Girja
Shakar Bajpai, KPS Menon, Subimal Dutt, Badruddin Tyabji, Rajeshwar
Dayal, TN Kaul, VC Trivedi, MK Rasgotra and stops at that, with no
mention of the period of Shri SK Singh and others. India’s
Ambassador to the UN Brajesh Mishra comes in for fulsome praise for
advising Indira Gandhi to oppose the Soviet intervention in
Afghanistan, an act that was unprincipled according to Mishra. He
was overruled and resigned from the IFS to head BJP’s Foreign
Affairs cell. He was an advocate of India’s nuclearisation ––
a dream fulfilled in May 1998. He currently heads the PMO, is the
Principal Secretary to PM Vajpayee and the National Security
Adviser. He has done some commendable work in diplomacy but his
formal position is yet to be clarified in relation to the Service
Chiefs and MoD.
Dixit
covers the entire spectrum of actions of Shri IK Gujral as EAM and
PM, calling him a pacifist and an optimist who will be appreciated
more for his idealism and overoptimistic stances, than his
achievements. PV Narshimha Rao is called the manager of transition
especially as he brought about economic diplomacy. He also says that
during this period, he functioned in effect as his own foreign
minister as Dinesh Singh was terminally sick within one month of
assuming office in March 1993. Dixit covers the periods of Jaswant
Singh who as EAM during his time he states seems to have demoralized
the IFS by proactive stances and too much personal contact with
Strobe Talbott of USA, which has been corrected by the present EAM
Yashwant Sinha.
On
Op Pawan in Sri Lanka, Dixit avoids any blame and has been brief.
Rajiv he claims was too dependent on the Intelligence agencies (RAW
and IB) and military inputs and advice from his close advisers. It
is recorded that Dixit used to sip cognac with ex President
Jayawardene and got taken in by that fox. Dixit had earlier written
a voluminous book Assignment Colombo –– a one sided view
of that period, defending his role which can only be judged when the
official records are released.
However
on 27th May 1987 it is recorded history that at 7 pm Mr. Dixit
called on President Jayawardene and conveyed a message from PM Rajiv
Gandhi to call off the Operation Liberation in the North, failing
which India would review its options (Military?). As Jayawardene
states in his book "Men and Memoirs", Dixit had jotted
points on the back of an envelope, and read them out as received.
Dixit definitely supported this stance leading to a long drawn out
operation leaving the army confused as to what its role was, and
whose instructions were to be followed –– the High Commissioner
in Colombo, or the many masters in India including Gen K Sundarji.
The
reasons for the foray are still unclear –– whether it was to
obtain greater autonomy for Tamilians, relieve the pressure on the
Tamils, take on the LTTE or some other diffused aim, like
maintaining the integrity of Sri Lanka, or prevent foreign
interference, a bogey highlighted by Mani Dixit to the Government
then. Rajiv was impatient and Jayawardene was facing a JVP uprising
in the South. Dixit with some brilliant maneuvering began to forge
an agreement document to bring in Indian troops on Sri Lankan soil.
History will need to record the haphazard manner in which all this
was done. Events and parleys spearheaded by Mr Dixit moved swiftly
to hammer out an accord, which the military claim they never saw,
nor were they consulted.
Prabhakaran
and his aides were flown from a remote place in the Jaffna Peninsula
to depart for Delhi on 21 Jul by IAF helicopters and then by an Avro
plane to agree to the accord. En route Prabhakaran insisted he would
have to confer with MGR. Prabhakaran was cajoled to agree to the
accord, which LTTE reneged on. Rajiv paid for this with his life.
Both
books touch on many sensitive subjects including India’s nuclear
programs which Deshmukh states were firmly steered from the PMO’s
office from 1989 to counter Pakistan’s secret nuclear capability.
The period of eight Prime Ministers comes alive and the books unfold
the story of how PMO and Foreign office take critical decisions.
These years were tumultuous periods when the fortunes of the
Congress party slid, HDW, Bofors, Airbus and Harshad Mehta scandals
derailed India with varied shades of corruption, the demolition of
the Babri Masjid saw the strident rise of BJP and the era of
coalition governments has come to stay. In the main, policies were
made by people with vested interests and this is highlighted as also
the fact that no clear cut policy making guidelines seem to exist in
high offices. Very direct pointers and names have been mentioned to
tickle the curiosity of the inquisitive reader to guess the identity
of the culprits in many of the corruption issues, and decision
makers in other events.
In
a lighter vein BGD informs readers how former Vice President Jatti
took his cow in the train that took his VIP saloon car to Bangalore
when he demitted office, and writes of the occasion when he excused
himself from a cabinet meeting to attend a dance recital at Siri
Fort in New Delhi and found, to his surprise Rajiv Gandhi present
there. Rajiv greeted him with a wink and the words, that even Prime
Ministers can play hooky.
On
other occasions Rajiv used to call BGD Mr Humphrey after the “Yes
Minister” series. BGD is convinced Rajiv Gandhi was personally
clean though he may have been aware of those close to him who may
have been involved in Bofors. On personalities, Deshmukh’s views
are very firm and at times harsh and without substantiation. He
labels TN Seshan and Mani Shankar Aiyer sycophants. He discusses how
Lt. Governor of Delhi Mr. Wali was removed. He writes highly about M
K Narayanan, Director IB whom he helped reinstate and gives Admiral
R H Tahiliani good marks. He informs the reader of the role of Arun
Singh a close confidant of Rajiv Gandhi who became the de facto
Defence Minister, and states he was in awe of the then service
chiefs Tahiliani, Sundarji and La Fountaine.
The
entire ping-pong of higher decision-making is unfolded for
interested readers.
(The
writer is author of “Indians, Why We Are What We Are” and
“Admiral Vishnu Bhagwat Sacked or Sunk “(Manas), in which
Op Pawan and current security issues of the 1980's and early 1990's have
been discussed from a military stand point.)