MANOJ JOSHI
A recent study of the 2017-2018 Parliamentary Standing Committee on Defence (PSCOD) has revealed that India’s defense services are facing a severe resources crunch. Given the enormous amount of coin that the province is already spending on defence, the chances are slim that the authorities volition come upwards up amongst the significantly higher amounts of funds needed for modernisation. Meanwhile, the armed forces are facing obsolescence inwards equipment. The way out is a systematic as well as deep reform of the organisation as well as meliorate management of the defense system—these, inwards fact, have got been recommended yesteryear diverse skillful groups as well as the PSCOD over the yesteryear 2 decades.
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Introduction
India has ane of the largest armed services forces about the basis as well as its defense budget is the 5th largest globally. However, it is good known that its forces—currently manpower-intensive—are struggling against obsolescence, as well as modernisation lags anywhere betwixt 10 to xv years.
On paper, the Indian armed forces have got been given instructions to ensure their capabilities for dealing amongst the possibility of state of war on 2 fronts, viz. against Cathay as well as Pakistan.[i]However, at that spot are many who doubtfulness whether the forces indeed have got the mightiness to contend as well as win such a war.[ii]
The work of modernisation has been shadowing all 3 wings of the armed forces for some fourth dimension now. Ill-conceived as well as poorly executed R&D as well as production programmes have got triggered acquisition gaps, which cannot live filled yesteryear imports lone because of resources constraints. The Indian military—whose modernisation is behind yesteryear to a greater extent than than a decade and, to commence with, is hobbled yesteryear an archaic organisation as well as control system—is simply non set upwards for the sort of contact-less warfare that emphasises long-range precision strikes as well as data dominance.
This number was echoed before this year, when a study of the 2017-2018 Parliament’s Standing Committee on Defence (PSCOD) cited a deposition of the Vice Chief of the Army, stating, “Typically, whatever modern armed forces should have got one-third of forces, one-third of its equipment inwards the vintage category, one-third inwards the electrical flow category, as well as one-third inwards the province of the fine art category. As far every bit nosotros are concerned, the province today is 68 percent of our equipment is inwards the vintage category, amongst exactly nigh 24 percent inwards the current, as well as 8 per cent inwards the state-of-the-art-category.”[iii]
Faced amongst this situation, the armed forces have got been scrambling to respond, unremarkably yesteryear shaving off their capabilities slowly. The Army has traditionally looked at maintaining War Wastage Reserves for a menstruum of xl days of intense fighting, termed 40(I). Some years agone it whittled downwardly its requirements of some types of ordnance, such every bit rockets as well as anti-tank missiles as well as specialised anti-tank shells to exactly 10 days or 10(I), but it is finding it hard to fifty-fifty come across this goal.[iv]
At a recent coming together of its top commanders, the Army decided to discontinue the purchase of spares for the so-called vintage platforms. In addition, it stated that it would non pass coin on spares to maintain “vintage” OSA/AK SAM’s, Tunguska Anti-aircraft systems, as well as KrAZ as well as Zil high-mobility vehicles. What was startling was the revelation that the Army would non purchase critical ammunition, such every bit Smerch rockets, Konkurs anti-tank missiles, specialised tank ammunition as well as influence mines which are needed to render the Army units firepower for 10(I) situations.[v]
According to a newspaper published yesteryear Stockholm International Peace Research Institute (SIPRI), “India was the world’s largest importer of major arms inwards the menstruum 2013–17, as well as accounted for 12 per cent of the global total. Its imports increased yesteryear 24 per cent betwixt 2008–12 as well as 2013–17.”[vi] Yet yesteryear their ain accounting, the modernisation plans of the 3 Services are hugely delayed.
The Problem of Allocating Funds
According to ane report, the Army had spent INR 11,000 crore for emergency procurement of ammunition as well as some other INR 15,000 crore for making upwards 10(I) stocks of spares as well as ammunition. The government, however, had non provided additional funds as well as the coin had to come upwards from the annual procurements budget. With coin existence deployed for emergency purchases, routine procurement has suffered, adding to the crisis.[vii]
Instead of addressing the issues at hand, however, successive governments, live it the UPA or the electrical flow NDA, have got blocked the channels through which the services are able to depict the attending of their political masters. First, the annual “state of the forces” presentations yesteryear service chiefs to the political executive were stopped. The service chiefs were asked to instead pen downwardly their deficiencies. In 2012, the leak of a missive of the alphabet from the as well as so Army Chief General VK Singh complaining nigh debilitating shortages resulted inwards this do existence terminated. Presentations before the PSCOD became a channel for venting the complaints.[viii]
This province of affairs has wider implications. Republic of Republic of India is a nuclear weapons mightiness as well as does non human face whatever external existential threat. At the conventional level, at that spot tin live no doubtfulness that the Indian armed services volition contend whatever adversary to protect the interests of the province if ordered to do so. However, whether or non they tin prevail as well as terminate the conflict at a dot of a desired outcome depends on their capabilities.
There has been utter of Republic of Republic of India playing a larger regional role, as well as fifty-fifty emerging every bit a “net safety provider” inwards South Asia. However, every bit scholar Shashank Joshi has pointed out, the core of modernisation lies inwards 3 areas: capabilities, procurement, as well as higher defense management. India’s tape inwards all 3 areas has been mixed: at that spot was capability growth inwards some areas, but at that spot was also stagnation inwards others. In the curt to medium term, Joshi concluded, “India’s mightiness to projection strength volition remain constrained yesteryear a attain of factors—such every bit intelligence, institutions, as well as surplus combat capacity—even every bit combat platforms of longer attain come upwards into service.” [ix]
The 2018-2019 Defence Budget: An overview
Defence is the instant largest expenditure of the Union government, the commencement existence the involvement paid out for debt. The biggest pressure level that the defense budget is facing is inwards the expanse of modernisation amongst honour to capabilities as well as procurement. For some years now, the allotment for uppercase expenditure has been below what is projected.
What the PSCOD study reveals is that at that spot is massive shortage at the story of capabilities as well as procurement. Its study noted that inwards 2017-2018, the services had asked for INR 1,32,212 crore for their uppercase budget, but they got only INR 86,488 crore. In the electrical flow year’s budget, the projected demand was INR 1,72,203 crore, but the allotment was INR 93,982 crore. It is non every bit though the armed forces were making some extraordinary demands. The fact is, every bit the PSCOD noted, of the total of INR 172,203 crore, every bit much every bit INR 110,043 crore was truly for committed liabilities, namely, equipment for which payments had to live made.[x]
In price of numbers, the Ministry of Defence budget totalled INR 4,04,365 crore. But the ministry building has arbitrarily decided non to count the costs of the expenditure inwards the Ministry of Defence (1 inwards Table 1) as well as the Defence Pensions (3 inwards Table 1) inwards what it calls its budget.[xi]Since all the coin is coming from the same pool, this study counts it every bit constituent of the budget. This is to a greater extent than revealing since it brings out the unsafe salience of defense pensions inwards the expenditure. At INR 1,08,853 crore, this amounts to roughly one-fourth of the budget. Indeed, it already exceeds the full salary pecker of the 3 services, which stands at INR 1,03,096 crore. The salary of the auxiliary forces as well as civilian employees amounts to some other INR 16,000 crore or so.
Table 1. The Defence Budget
1. Ministry of Defence INR 16,206 crore
2. Army INR 130,862
Navy INR 20,221
Air Force INR 30,121
Ordnance factories INR 15,644
R&D INR 8,276
Total INR 205,125
Capital outlay on Defence services INR 93,982.13
INR 299,107 minus receipts of INR 19,802
Total 1+2 INR 279,305
3. Defence Pensions INR 108,853
Grand Total 1+2+3 INR 404,365
From Demand for Grants, Government of Republic of Republic of India Demand for Grants 2018-19
According to the Ministry of Defence, adjusting for inflation, the increment inwards the budget guess for the electrical flow fiscal yr is only 0.75 percent over the 2017-2018 budget. Taken altogether, including the pensions, it amounts to INR 4,04,365 crore, which accounts for 16.6 percent of the Central Government Expenditure (CGE) as well as 2.16 percent of the GDP. The Defence uppercase expenditure is 33 percent of the Capital Expenditure of the Union Government.[xii]
The reality is that the defense budget, every bit a per centum of GDP, has been declining. However, if ane goes yesteryear the official convention as well as ignores the MoD as well as Pensions, ane tin reckon that defense expenditure every bit a part of the gross domestic product has declined from 2.08 percent inwards 2013 as well as 2014, to 1.56 percent as well as 1.49 percent inwards 2017 as well as 2018, respectively. The part of the 2017 as well as 2018 budget every bit a proportion of CGE amounts to 11.86 as well as 11.44 percent, respectively.[xiii]
Manpower costs have got been growing exponentially—from 44 percent inwards 2010-2011, to 56 percent inwards 2018-2019. In the same period, uppercase expenditure has declined from 26 to eighteen percent. The worst affected unit of measurement has been the Indian Army, which spends 83 percent of its budget on revenue expenditure, which includes salaries as well as maintenance of existing equipment. This could become upwards to xc percent inwards the coming years. Experts say that the ideal is 60:40 where sixty percent is revenue expenditure, as well as xl percent is uppercase outlays for acquisition as well as modernisation.[xiv]
What the PSCOD study means
The PSCOD reports for the 2018-2019 budget dot that the province of affairs is serious. The Indian armed forces’ capabilities are dipping to an alarmingly depression level, fifty-fifty every bit the government’s efforts to energise procurement as well as reform higher defense management are faltering. In its testimony to the PSCOD, the Ministry of Defence acknowledged that the provisions for salary as well as other ‘obligatory’ expenses would have got to live met, every bit good every bit those for maintenance, shipping as well as ordnance. Similarly, when it comes to uppercase expenditure, committed liabilities volition have got to live accounted for first. In thought of the funds constraints, the Ministry testified, “The procurement invention for uppercase modernization schemes may have got to live reviewed as well as reprioritized, based on available funds.” For the 2018-19 budget, at to the lowest degree such funds are non available.[xv]
A deeper aspect at the defense budget reveals that the existing scheme may live scraping the bottom of the metaphorical barrel inwards price of effectiveness. Two alarming figures choose out the intractable nature of the problem. First, despite well-publicised deficits inwards the expanse of submarines, fighter aircraft as well as artillery, to cry but a few high-value systems, defense already consumes every bit much every bit 33 percent of the Union Government’s annual uppercase budget. The instant is the revelation that the Defence pensions account, which is officially non counted inwards the budget, instantly exceeds the salary as well as allowances pecker of the 3 services.
The ground for this is the enormous manpower holdings of the defense services, primarily the Indian Army. One of the to a greater extent than of import issues that emerges from the PSCOD is the demand to tackle the affair of manpower. The paradoxical nature of the work is evident from the fact that the Army, despite existence nearly 1.2-million strong, remains below its authorised strength.
Table 2. Existing as well as sanctioned manpower[xvi]
Army Navy Air Force
Officers/JCO OR Officers/ JCO OR Officers/ JCO OR
Sanctioned 49,932/ 1215,049 11,827/ 71,656 12,550/ 142,529
Existing 42,253/ 1,19486 10,393/ 56,835 12,404/ 127,172
*JCO=Junior Commissioned Officers; OR= Other Ranks
Dealing amongst the Demand for Grants of the previous yr (2017-2018), the Committee had suggested that ane way out was to institute a five-year compulsory armed services service for individuals wanting to bring together the Central as well as State authorities services. The Ministry’s answer was that the proposal had been sent to the Department of Personnel as well as Training (DoPT). However, at the fourth dimension of the hearings on the 2018-2019 demands, zippo had been heard on the proposal.[xvii]
The number of rising manpower has been worrying the political authorities for some fourth dimension now. Speaking to the Combined Commanders Conference held on INS Vikramaditya inwards Dec 2015, Prime Minister Narendra Modi declared that “modernisation as well as expansion of forces, both at the same fourth dimension is a hard as well as unnecessary goal.” He was referring to the Mountain Strike Corps, whose demand for budgetary resources has been so high that the invention to heighten these forces has been scaled back, if non abandoned.[xviii]
Impact on the 3 services
Since disbursing salary as well as allowances of the personnel has commencement claim on the budget, the primary impact of the lack of resources falls on maintenance of existing equipment as well as acquisition of novel systems to supersede the obsolete ones. The Indian armed services already has a backlog inwards maintaining its older systems fifty-fifty every bit it confronts the challenge of modernising, because resources constraints as well as bad management have got led to an accumulation of demands.
The Army is looking for novel tanks, artillery, combat vehicles, improved communications systems, as well as meliorate mightiness to engage inwards nocturnal battles. The Navy is looking for a massive expansion of its fleet, as well as to larn to a greater extent than submarines, aircraft carriers, as well as meliorate aviation capacity. Meanwhile, the Air Force wants to increment its squadron strength from the electrical flow 32 aircraft, yesteryear some other 10. In addition, it wants to a greater extent than Airborne Warning as well as Control Systems (AWACS), refuellers, as well as helicopters.
Vice Chief Lt Gen Sarath Chand told the PSCOD that 63 percent of the Army budget goes into paying salaries. Maintenance as well as routine operational requirements accept some other xx percent, leaving xiv percent for modernisation, “which is grossly inadequate.” [xix] The marginal increment inwards 2018-19 Budget Estimates barely accounted for inflation as well as did non fifty-fifty cater for the taxes. The allotment of INR 21,338 crore for modernisation was insufficient fifty-fifty to cater for the already committed payments of INR 29,033 crore for 125 ongoing schemes, emergency procurements, as well as other ordnance requirements.
Complaints from the Army nigh shortages are non new. In 2012, a leaked missive of the alphabet from Army Chief General VK Singh said that Army tanks lacked critical ammunition as well as 97 percent of the air defense systems were obsolete. The missive of the alphabet also stated that at that spot were “large scale voids” inwards essential weaponry as well as surveillance as well as nighttime fighting equipment of the infantry. [xx] In its 11th Plan (2007-2012) review, the Army had listed the huge gaps inwards artillery, aviation, air defence, nighttime fighting equipment, anti-tank missiles, precision-guided munitions every bit good every bit tank as well as rifle ammunition.[xxi]
Details of the shortages of ammunition were set out inwards the Comptroller as well as Auditor General’s Report No. xv of 2017. An annexure to the study lists the shortfall inwards the availability of diverse types of munitions every bit of Dec 2016. While shortages inwards measure 155mm artillery shells had been filled, those inwards other specialised munitions ranged anywhere from 32 to 100 percent. The same was truthful of mortar shells, specialised fuses as well as charges for artillery ammunition.[xxii]
The Navy as well as Air Force are capital-intensive services. The Navy projected INR 35,695 crore, but was allotted only INR 20,004 crore for its uppercase outlay. Of this sum, committed liabilities volition swallow INR 15,083 crore. The PSCOD observed that this budget deficit of nearly xl percent “will indeed have got a cascading impact on the operational preparedness as well as technological upgradation of the Navy.” [xxiii]
The Committee also noted that the part of the naval budget to the full defense budget was declining from 18.12 percent inwards 2012-13 to 13.11 percent inwards 2018-19. This was also reflected inwards the uppercase outlay, which was 12.81 percent of the full defense inwards 2012-13. It came downwardly to 8.83 inwards 2016-2017, to 7.46 inwards 2017-18, as well as is only 7.1 percent this year. [xxiv]This is ironic: Since quondam the United States of America President Barack Obama’s see to New Delhi inwards 2015, Republic of Republic of India has been signalling its growing commitment to the American Indo-Pacific strategy as well as the Quadrilateral grouping. However, the reality of declining uppercase expenditures on the Navy sends quite some other message. Incidentally, neither inwards the PSCOD’s observations nor the presentations made yesteryear the Navy as well as the Ministry of Defence, is at that spot whatever reference to the follow-on aircraft carrier – the IAC-2 – also known every bit Vishal.
One of the problems inwards the electrical flow acquisition procedure is its haphazard as well as unplanned nature. Today Republic of Republic of India has a fleet of modern P-15A destroyers or P-28 corvettes, but they lack an adequate multi-role helicopter, which is vital for hunting submarines. The Sea King Mk 42B has been the mainstay of ASW ops since the 1980s, acre the older ones have got already retired xx years ago.
The Navy needs exactly about 140 MRHs, but at that spot has been no movement fifty-fifty for the limited purchase of xvi machines. H5N1 tender for xvi Sikorsky S-70B Seahawk was scrapped because the deadening decision-making procedure led to the cost increasing yesteryear xl percent yesteryear the fourth dimension it was finalised. The Navy has 10 Kamov 28s as well as xvi Sea Kings, of which only nigh 10 machines are serviceable at whatever given time.[xxv]
In add-on to the helicopters, these ships also lack their active towed array sonar systems. According to reports, a contract has finally been signed—years after many of the ships have got been commissioned as well as have got been sailing—to obtain the systems which volition live fitted inwards the newer ships as well as retrofitted inwards the older ones. [xxvi]
The IAF projected INR 1,14,256 crore for both, the revenue as well as uppercase outlays, as well as got roughly one-half that amount, which is INR 65,891 crore. Given that the revenue budget was curt yesteryear INR 6,440 crore, as well as that the salary work organisation human relationship could non live touched, the burden would autumn inwards the expanse of spares, fuel as well as maintenance as well as training.
Funds scarcity volition also impact the efforts of the IAF to develop its 10 (I) capabilities. In his testimony, the Vice Chief of the Air Force, Air Marshal S B Deo, said that acre deals worth
INR 20,000 crore had been entered into for the purpose, the budget allotment did non come across those requirements.[xxvii]
As is the instance amongst the other capital-intensive service, the Navy, the Air Force, too, has found that every bit a proportion of the overall defense budget its uppercase outlays have got declined. It was 17.51 percent inwards 2007-08, as well as inwards 2016-17 it went downwardly to 11.96, though it has gone upwards marginally inwards 2018-19 to 12.8 percent. [xxviii]
Higher Defence Management
The budget province of affairs is unlikely to alter inwards the nigh to medium term. For this reason, it is of import to emphasise the demand for deep reforms inwards the defense system, every bit good every bit its effective management to both mitigate the electrical flow work as well as transform the Indian armed services into a modern war-winning force. Better higher defense management is needed to maintain the existing capabilities at their optimum through timely replacement of obsolete equipment, proper maintenance as well as upgrade of existing equipment, every bit good every bit adjusting organisational construction as well as strategic plans to bargain amongst emerging threats.
Over the years, 2 primal reports—that of the Group of Ministers (GOM) inwards 2001, as well as the Naresh Chandra Committee inwards 2012—have focused on the following:
i). Promoting jointness inwards the armed forces through the appointment of a Chief of Defence Staff (CDS), essentially a figure who volition Pb the procedure of integration of the armed forces; and
ii) The entry of uniformed expertise into the civilian Ministry of Defence as well as attain synergies to enable Republic of Republic of India to develop a vibrant defense industrial base of operations as well as streamline procurement processes.
Most students of modern warfare admit that no unmarried service tin win a state of war yesteryear itself. Applying all the strength they possess inwards a synergised mode requires different methods of control than what the Indian armed services is used to. Similarly, to ensure maximum synergy, it is of import to have got a ministry building of defense which has an optimum mix of skillful civilians as well as uniformed officers.
The PSCOD recalled its before recommendations of the demand to do the postal service of a CDS. It also noted that the GOM recommendation to the effect had truly been approved yesteryear the authorities inwards May 2001, dependent area to consultation amongst diverse political parties.[xxix] Following this, the authorities had created the Integrated Defence Staff (IDS), which would back upwards a CDS, but never got about to truly appointing the CDS. Currently, the Chief of Integrated Defence Staff (CISC), therefore, serves the existing Chiefs of Staff Committee (COSC), as well as most recently, it had been asked to piece of work amongst the newly created Defence Planning Committee (DPC). Similarly, the GOM recommendations led to the creation of a tri-Service Defence Intelligence Agency, which comes nether the IDS.
The Ministry of Defence answer to the electrical flow 2017-2018 PSCOD was, every bit usual, circular. It said that amongst the recommendation of a permanent chairman, Chief of Staff Committee, made yesteryear the Naresh Chandra Task Force on National Security having been placed before the Cabinet Committee on Security inwards Apr 2014, at that spot were instantly “two proposals for the establishment of the CDS as well as Permanent Chairman COSC” as well as that when the CCS finally got downwardly to accept a conclusion on the Naresh Chandra Task Force’s recommendations, “both proposals volition live taken notation of as well as a in conclusion conclusion would settle both proposals.” The committee’s acerbic comment was that it found “this respond repetitive as well as routine inwards nature.”[xxx] In its in conclusion recommendations, the PSCOD noted, “The Committee are of the thought that a permanent Chief of Defence Staff is urgently required for interwoven as well as synchronised efforts of the Services to attain desired results inwards peace as well as war.”[xxxi]
The PSCOD, however, has non taken upwards the larger number of civil-military integration inwards the Ministry of Defence. Currently, though the ministry building calls itself the ‘Integrated Ministry of Defence’, it is simply a relabelling do aimed at misleading observers.[xxxii] The fact is that the civil as well as armed services sides are only carve upwards entities, as well as fifty-fifty maintain parallel files on issues. The GOM had recommended the integration of the Service Headquarters into the Ministry of Defence, fifty-fifty though it believed that the separation was but an administrative measure, as well as non a management device. The alter inwards nomenclature was carried out, but the Transaction of Business Rules as well as the Allocation of Business Rules were non amended, resulting inwards petty change.
The Naresh Chandra Task Force pointed out that through the Services HQs were notionally upgraded to the Integrated HQ of the Ministry of Defence, “there was inwards effect no substantial delegation of control to the Service Chiefs.” As of now, though the government minister runs the MoD, it is the civilian secretarial assistant who remains the individual responsible for the “proper transaction of business” of the Ministry. The rules remain soundless on the responsibilities of the uniformed personnel.
As quondam chairman of the Chief of Staff Committee, Admiral Arun Prakash has noted, “The chiefs have perfunctory attending from the politicians as well as bureaucrats because they have got no locus standi inwards the building of the GOI. It is the Secretary DoD (Department of Defence) who, yesteryear Rules of Business, represents the 3 Services.”[xxxiii] Besides calling for the suitable amendments of the TOBR as well as AOBR, the Naresh Chandra Task Force specifically recommended cross-staffing to have got armed services personnel service inwards the chain of control of the ministry building of defense as well as its offices, as well as civilian officers inwards the Service HQs. The study called for the creation of a specialised cadre of defense specialists that volition handle the Ministry of Defence inwards house of the generalist civil service personnel.[xxxiv]
The Question of Political Leadership
None of the committees, including the GOM of 2001, which comprised ministers who were also members of the Cabinet Committee on Security, chose to examine the of import number of the political leadership of the Ministry of Defence—its weaknesses, range as well as requirements. It is truthful that inwards a democratic system, at that spot are no expectations that the ministers in-charge volition have got whatever specific expertise inwards the departments they are asked to handle. Yet, what is most for sure needed are management skills inwards running complex organisations and, when it comes to dealing amongst weighty issues similar reform as well as restructuring, the government minister concerned needs to have got political heft to bear issues inside their ministry building as well as inwards the Cabinet Committee on Security as well as Parliament.
Operation Bluestar is a lesson on the importance of political leaders paying attending to operational issues relating to the military. Had the political leadership been inwards the loop inwards the planning as well as execution of the operation, mayhap it would non have got taken the plough it did.
Fortunately, when the political degree did larn involved, every bit they did inwards Kargil, a disastrous province of affairs was effectively turned about through skilful armed services treatment as well as diplomacy.
Since 1962, the Indian political degree has tended to avoid getting involved inwards operational matters as well as confining their stewardship of the armed forces yesteryear providing strategic guidance. This is an outdated concept that does non come across contemporary needs. Today, every bit 9/11 inwards the the United States of America showed, a terrorist set on tin have got far-reaching, strategic consequences requiring political guidance at every story of response.
India’s political leadership needs to human face upwards the resources as well as organisational crisis confronting the armed forces. To run the armed services effectively inwards a province of affairs where resources volition live constrained for the side yesteryear side decade, at the least, at that spot is demand for deep restructuring as well as reform. This is non a task that tin live done yesteryear the bureaucracy, but requires the stewardship of the CCS. H5N1 answer of sorts emerged inwards Apr 2018, shortly after the PSCOD was released, when the authorities announced the setting upwards of the Defence Planning Committee (DPC) to live headed yesteryear National Security Adviser, Ajit Doval.[xxxv]
The Defence Planning Committee
The authorities notification for setting upwards the torso was non made public, but a re-create given to the media revealed that it was seen every bit a ‘new institutional machinery for Defence Planning.’ According to the notification of the Ministry of Defence, dated eighteen Apr 2018, the DPC “would analyse as well as evaluate all relevant inputs relating to defense planning, inter alia, national defense as well as safety priorities, unusual policy imperatives, operational directives as well as associated requirements, relevant strategic as well as security-related doctrines, defense acquisition as well as infrastructure evolution plans, including the 15-year Long Term Integrated Perspective Plan (LTIPP), defense technology scientific discipline as well as evolution of the Indian defense manufacture as well as global technological advancements.”[xxxvi] In addition, the DPC has been asked to set upwards the National Security Strategy (NSS) as well as the Strategic Defence Review (SDR). Presumably, the hereafter operational directives of the Defence Minister volition emerge from the doctrine as well as strategy worked out yesteryear the committee.
This hybrid higher-defence management grouping is as well as so set to render non only the higher strategic management to the country, but also larn into the nuts as well as bolts of defense manufacturing, procurement as well as exports. The membership of the torso suggests an endeavor to larn defense planning out of the diverse silos. Its principals are the NSA, Service Chiefs, Foreign Secretary, Expenditure Secretary as well as Defence Secretary. Strangely enough, the intelligence chiefs are excluded.
While this may live a “whole of government” approach to defense planning, the members of the DPC are all preoccupied as well as thus the inquiry is whether they tin render to a greater extent than than token leadership. The presumption, though, is that their piece of work volition live done yesteryear the 4 subcommittees that the outfit has on Policy as well as Strategy, Plans as well as Capability, Defence Diplomacy, as well as Defence Manufacturing.
Questions remain at this juncture. Is the DPC existence seen every bit a substitute for the long-standing demand for integration betwixt the civilians as well as uniformed personnel inwards the Ministry of Defence? What volition live the role of the COSC, if primal duties similar the LTIPP are taken upwards yesteryear the DPC? The fact that the HQ IDS is the anchor of the DPC volition propose that, indeed, that is what the authorities is thinking. In that sense, setting it upwards may non live a bad thought as well as could, given the resistance to reform, live seen every bit the evolution of a higher defense management scheme amongst “Indian characteristics”. Militaries may require staffs as well as committees for organisation as well as logistics, but the bottomline is that they also demand a control civilization to prosecute war.
Yet, the DPC does non address many of these issues critical for the effective functioning of the Indian defense system. These relate to the integration of the higher control of the armed forces, their possible reorganisation into house commands, as well as the assimilation of armed services expertise into the civilian Ministry of Defence for its effective functioning.
The DPC may live able to attain a swell deal, make a first-rate National Security Strategy or LTIPP, give a force to the defense R&D as well as industry, as well as larn the authorities to trounce out additional money. However, all this volition live to petty avail if the armed services musical instrument they demand to execute it is dysfunctional because of the lack of thorough, top-to-down reforms inwards its organisation as well as the way it is commanded.
Conclusion
There was a fourth dimension when running the Ministry of Defence was a fairly straightforward task, largely handled yesteryear the bureaucracy. However, such path has turned out to live unsustainable. Today, to fifty-fifty run the Ministry of Defence effectively, at that spot is a demand to commencement bear out deep reforms as well as a restructuring of the ministry building as well as its diverse attached offices.
The PSCOD hearings as well as study have got revealed an abyss confronting the Indian defense system. The introduce province of affairs has emerged non only because of lack of funds, but owing to a combination of poorly deployed resources, institutional weaknesses, as well as null strategic guidance.
Perhaps the most of import of the tasks ahead is the appointment of a CDS. The Group of Minister’s study of 2001 observed that “the functioning of the Chiefs of Staff Committee has, to date, revealed serious weaknesses inwards its mightiness to render single-point armed services advice to the authorities as well as resolve substantive inter-Service doctrinal, planning, policy as well as operational issues adequately.” [xxxvii] This seat remains unchanged.
This scheme non only leads to waste matter as well as duplication, every bit at that spot is no control to prioritise capability acquisitions, it also results inwards an unhealthy contest for resources, every bit has been the instance amongst the Air Force as well as the Army over set on helicopters, or the Air Force as well as the Navy over maritime strike. Multiple committees since the 1990s have got argued for a greater integration of the 3 wings of the armed forces nether a CDS-like figure, the most recent existence the Shekatkar commission appointed yesteryear the previous Defence Minister Manohar Parrikar.
Such a figure volition live the go-to individual for the authorities when seeking to adjudicate issues that relate to 2 Services. S/he volition live set inwards accuse of joint-planning, writer the articulation defense strategy, grip ‘out of area’ contingencies, control existing tri-service institutions as well as shape hereafter house commands. In this scheme of things, human resources management, preparation as well as service specific doctrines, equipping as well as maintaining readiness of forces volition live the responsibleness of the respective service chiefs. The actual war-fighting volition live done through house commanders who volition organise the combat-ready forces to execute the required strategy.
The Defence Department volition maintain to play the role of managing budgets of the diverse defense plans, supervising their execution, as well as maintaining fiscal accountability to Parliament. In that sense, the Defence Secretary volition live the principal defense adviser to the government, responsible for policy advice, fiscal management, parliamentary accountability of the subdivision as well as coordinating the finalisation of the Defence Perspective Plan, the Five Year Plan as well as the annual budget. However, given the specialised nature of the task, he/she needs to live assisted yesteryear a bureaucracy, which should comprise uniformed as well as civilian personnel. Here the civilian bureaucracy volition have got to develop the sort of expertise that their uniformed counterparts volition choose to the job.
This study has focused extensively on the inelastic nature of the resources compaction facing the military. Enormous savings are possible through the reduction of multiple headquarter formations that be today. H5N1 to a greater extent than efficient exercise of resources volition also arise from working out articulation logistics, preparation as well as housing of the forces. The movement on such reforms, which volition reckon the optimal exercise of resources, volition live a precondition as well as an incentive for the authorities to brand the extra endeavor to discover them.
In its 2017-2018 report, the PSCOD had recommended that a five-year compulsory armed services service live established every bit a precondition for entry into the Civil Services of the Union as well as State governments. The 2018-2019 study noted the Ministry of Defence answer that the number had been taken upwards amongst the Department of Personnel & Training, observing that the Ministry “has non taken upwards the affair amongst due seriousness.” This recommendation was inwards the context of the shortage of officers, but it has inside it the heart as well as soul of a larger solution to manpower costs.[xxxviii]
As this study has shown, despite the fact that salary as well as allowances are skewing both the modernisation as well as maintenance of the armed forces, all 3 services province that they are below their sanctioned strength. The rising pension bill, which exceeds the salary as well as allowances one, is a standing rebuke to the system. The way out is to institute a scheme whereby all recruitment of civil, police pull as well as paramilitary personnel is made through a puddle of personnel who have got done colouring service betwixt vii to 10 years. Their preparation volition do goodness them every bit civil servants or police pull officers, acre the authorities volition live able to stalk the massive pension springtime every bit good every bit cheque the salary as well as allowances pecker of the armed forces. Needless to say, at that spot should live sufficient flexibility to ensure the recruitment of people amongst special technical or linguistic communication skills or disabilities that preclude them from serving inwards the military.
The authorities has come upwards up amongst the novel DPC, but inwards price of its range as well as its tasks, it does non come across the task at hand. What the country’s armed forces demand is non to a greater extent than committees or bureaucratic attention. Rather, the leadership as well as sustained stewardship of the armed forces yesteryear the political degree who should commence the procedure by, first, carrying out drastic reform, which volition as well as so enable them to optimise the resources available as well as brand the Indian armed services capable of fighting as well as winning modern wars.
The primal recommendation, as well as this is the ane that is most hard to implement, is to larn the political degree to live to a greater extent than involved inwards defense policymaking. What is clear is that every bit members of the PSCOD, they are potent advocates of reform as well as restructuring, but when inwards authorities they discover it hard to implement their ain recommendations.
About the Author
Manoj Joshi is Distinguished Fellow at Observer Research Foundation.
[i] The Operational Directive is cited inwards Sandeep Unnithan, “Flat Broke”, Republic of Republic of India Today (New Delhi), May 14, 2018 p 29
[ii] On india’s inability to contend as well as win 2 front end wars reckon Gurmeet Kanwal, “Can Republic of Republic of India contend Cathay as well as Islamic Republic of Pakistan simultaneously?” Rediff.com, Oct 10, 2017; the same dot was made yesteryear the Western Army Commander, Lt Gen Surinder Singh at a seminar in conclusion yr when he said that a 2 front end state of war is “not a smart idea.” Man Aman Singh Chhina, “Two-front state of war non a goodness thought says top general,” Indian Express, March 1, 2018.
[iii] Standing Committee on Defence (2017-2018) Ministry of Defence, Forty Second Report: Demands for Grants (2018-2019) Capital Outlay on Defence Services, Procurement Policy as well as Defence Planning (Demand No 21) (New Delhi, Lok Sabha Secretariat March 2018) subdivision 1.1. The quote does non quite add together up, but it is taken straight from the report.
[iv] Unnithan, “Flat Broke” ,p 29
[v] Sushant Singh, “Cash Crunch, Army lists high-end ammunition it won’t buy,” Indian Express,April 20, 2018.
[vi] “Asia as well as the Middle East Pb rising tendency inwards arms imports, the United States of America exports grow significantly, says SIPRI,” SIPRI, March 12, 2018.
[vii] Sushant Singh, “Cash compaction “ n.5
[viii] Unnithan, “Flat Broke” p. 32
[ix] Shashank Joshi, “India’s Military Modernisation,” inwards Sumit Ganguly et al, eds. The Oxford Handbook of India’s National Security, (New Delhi, OUP, 2018) Chapter 20.
[x] Standing Committee (2017-2018) Ministry of Defence, Fortieth Report: Demand For Grants (2018-19) General Defence Budget as well as other subjects (Demand Nos 19&22) ( Lok Sabha Secretariat, New Delhi, March 2018) Section 1.24
[xi] This conclusion was taken inwards 1984-85, reckon Air Cmde Jasjit Singh (retd) India’s Defence Spending: Assessing hereafter needs (New Delhi, KW as well as IDSA,2000) p. 36
[xii] PSCOD Fortieth Report Sections 1.13 as well as 1.14
[xiii] Ibid
[xiv] Unnithan, “Flat Broke” p 33-34.
[xv] PSCOD Fortieth study Section 1.26
[xvi] Ibid Section 1.29
[xvii] PSCOD, Fortieth Report n x Section 1.34
[xviii] Sandeep Unnithan, “The mount is instantly a molehill,” Republic of Republic of India Today, Feb 24, 2016.
[xix] PSCOD Forty Second Report n.1, Sections 1.11 as well as 1.18.
[xx] Saikat Dutta, “DNA Exclusive: Gen V K Singh tells PM some hard truths,” DNA, March 28, 2012.
[xxi] “Army Chief’s missive of the alphabet to PM: General V K Singh exposes chinks inwards armour,” Times of India,March 29, 2012.
[xxii] Report of the Comptroller as well as Auditor General of Republic of Republic of India for yr ending March 2016, Union Government (Defence Services) Army as well as Ordnance Factories, Report No. xv of 2017Annexure VI
[xxiii] Standing Committee (2017-2018) Ministry of Defence, Forty commencement Report: Demand For Grants (2018-19) Army, Navy as well as Air Force (Demand No 20) ( Lok Sabha Secretariat, New Delhi, March 2018) Observ ations/Recommendations para 33.
[xxiv] Ibid., Sections 2.6, 2.9 as well as 2.8. H5N1 telling observation of the commission was that at the fourth dimension of in conclusion year’s Demand for Grants, the strength story of the Indian Navy was at 138 ships as well as submarines as well as 235 aircraft. This time, they were told that the existing strength is 136 ships as well as submarines as well as 219 aircraft. See Para 39 inwards Observations/Recommendations. Percentages hither do non accept into work organisation human relationship the Defence Pensions every bit per the official protocol.
[xxv] Rajat Pandit, “Lack of helicopters hits Navy’s operational capabilities against enemy submarines,” Times of India, March 5, 2017.
[xxvi] “Navy to larn latest sonar systems for anti-sub warfare,” The Economic Times, July 14, 2018.
[xxvii] PSCOD Forty First Report Section 51
[xxviii] Ibid Section 54 The percentages relate to the Defence Budget minus Defence Pensions every bit per official protocol. The Indian Air Force’s electrical flow strength is about 31 squadrons, though it is sanctioned 42. Besides the acquisition of novel fighters, the air strength also has the challenge of acquiring to a greater extent than trainer aircraft, specially basic trainers. In addition, it is seeking to supersede its existing fleet of Cheetah as well as Chetak helicopters yesteryear the Russian-made Kamov Ka-226T, as well as add together strength multipliers similar aerial refuelling as well as surveillance aircraft.
[xxix] PSCOD Fortieth Report Section 1.41
[xxx] Ibid
[xxxi] Ibid “Observations/Recommendations on General Defence Budget para 20.
[xxxii] An instance of the endeavor to mislead is available inwards an before PSCOD report. When asked nigh the Kargil Review Committee as well as GOM recommendations on cross-staffing uniformed personnel inwards the MOD, the Ministry’s answer was to render details of how many civilian officers instantly worked inwards the HQ IDS, a tiny outfit. The PSCOD, tartly noted, “The Committee neglect to empathise how the cross staffing blueprint inwards the construction of HQIDS tin address the recommendation of the Committee which relate to the appointment of Armed Forces personnel inwards the Ministry of Defence.” PSCOD, Action Taken Report on the recommendations/observations of the Committee contained inwards the Thirty-sixth Report (Fourteenth Lok Sabha) on ‘Status of implementation of Unified Command for Armed Forces’ (New Delhi, Feb 24, 2009) para 8.
[xxxiii] Admiral Arun Prakash, “Better Civil-Military Relations Needed for Improved Security of Indian State”, Southern Asia Monitor, July 22, 2018.
[xxxiv] Manoj Joshi, “The Unending Quest to Reform India’s National Security System”, Policy Report, March 2014 (S Rajaratnam School of International Studies, Nanyang Technological University) pp 2-3.
[xxxv] Shishir Gupta, “India to do super-committee for defense planning,” Hindustan Times,August 14, 2018.
[xxxvi] Ibid
[xxxvii] Recommendations of the Group of Ministers on Reforming the National Security System Feb 2001 p. 97
[xxxviii] PSCOD, Fortieth Report, Observations/ Recommendations para 15.
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