Academy JournalVOLUME 57 NO 1

MY ELEVEN YEARS AT THE ACADEMYA A Ali IPS (Retd.)Former Director SVP NPA

POLICE AND POLITICS IN INDIABook Review by Shri T Anantachari IPS (Retd.)

POLICE FROM THE PERSPECTIVE OF PEOPLEP S Bawa IPSFormer DGP

CBI - THE ROLE & CHALLENGESU S Misra IPSDirector, CBI

TRANSFORMING POLICE INTO AN EFFECTIVE INSTRUMENT OF PUBLIC SERVICESankar Sarolia IPSIGP, Bharatpur Range, Rajasthan

CHANGING FACE OF POLICE MAN IN INDIAN CINEMAMahesh BhattHindi Film Producer & Director

A MODEL ACTION PLAN FOR MAOIST INFESTED REGIONGiridhari Nayak IPSIGP, Bastar Range, Jagdalpur, Chattisgarh

THOUGHTS ON THIS & THAT: 25 YEARS IN THE IPS & BEYONDJayanto N Choudhury, IPSJoint Director, IB Shillong

MARKET APPROACH TO POLICING – SOME INTERNATIONAL TRENDSProf K RamachandranProfessor, Indian School of Business, Hyderabad

OUT OF HARM’S WAYShatrujit Singh IPSDIG CBI

VIOLENCE IN THE LAND OF THE APOSTLE OF NON-VIOLENCE -AN OVERVIEWOF COLLECTIVE VIOLENCE IN GUJARATS M Mahindra Simha KarnaUGC - Junior Research Fellow University of Madras Chennai

FOOT PRINTS ON THE SANDS OF CRIME- Book Review by A S Anandaram IPS (Retd.)

POLICE TRAINING AND FIELD REALITY (BRIDGING THE GAP BY NETWORKING THE INTERFACE) Jacob Punnoose IPS ADGP(Trg), Kerala

RELEVANCE OF ETHICS TO POLICER R Varma IPS (Retd.)Former DGP Himachal Pradesh ,

CUSTOMER ORIENTATION OF POLICE PERSONNEL AND THEIR MOTIVATION AND JOB SATISFACTIONB SandhyaDIG Crime Investigation (SR) Trivandrum, Kerala

ACTIVITIES OF BPR&D - AN INTRODUCTION AS R&D ORGANISATIONR C Arora IPSDirector R&D (BPR&D)

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3 Jan - June 2005

MY ELEVEN YEARS AT THE ACADEMYA A Ali

Within minutes of joining theCentral Police Training College, MountAbu, as a probationer, on October 7,1955, I found much to my consternation,that I had stepped back in time. Duringthe preceding five years, I had becomeused to being treated as an adult at theturbulent university I had graduatedfrom. Now I found myself once more in aschool like situation, as it was back tocompulsory attendance at classes,supervised extra curricular activities,organized games, and regimented meals.It was mortifying to be treated asnothing better than a school boy all overagain. Neither I, nor my batch fellows,barring one rebel, made an issue of it,though, because my generation was yetone, which accepted the diktats of family

elders, school masters and people inauthority, much more readily than thesucceeding generations. I accepted thesituation without demur by rationalizingto myself that a controlled regimen mustbe appropriate for a disciplined, uniformservice.

It took a little time to understandthat the philosophical underpinning ofthe system of the training of IPSprobationers was a vestige of the past.At the beginning of the last century, thePolice Commission of 1902-03 had, whilediscussing the kind of youth themembers felt would be suitable for theIndian Police, made the startlingobservation that while they thought“university men” were needed for the

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ICS, for the corresponding police servicethey preferred “school lads”.Consequently, training programsdesigned for the needs of lads fresh outof school and the police traininginstitutions themselves kept the publicschool as the model. And, just asindependent India adopted the colonialpolice system, unconcerned about itsinappropriateness, so was that trainingphilosophy accepted unhesitatingly forthe CPTC. Surely, it was not a merecoincidence that while the defunctLawrence Public School, at Mount Abu,was selected for locating the CPTC,Metcalfe House in Delhi was selectedfor the IAS training institute.

My memories of the year spent atthe CPTC, despite the antediluvianliving and working conditions, are verypleasant, barring one painful one.

Mount Abu, itself, was then asmall but beautiful hill station. The airwas cool and crisp; ideal for drill, P.T.and long rides. The camaraderie wasexcellent; it had to be, because there washardly any one else in Abu for usprobationers to socialize with, except thethirty-five of us. Life was congenial,though monastic. The saving grace wasthe presence of three remarkable men onthe directing staff: J.W. Rodrigues,R.K.S. Deb and S.H.J. Pratt. Of course,there was the Commandant, too - SardarWaryam Singh, IP. A handsome figureof a man who in his mid-fifties couldclimb the rope as well as any “ustaad”and who looked glamorous in his bluepatrols at formal dinners. But, he wasquite a bit remote. Mr. Rodrigues, wasthe Assistant Commandant, and for usthe person who really ran the institution.He was strict, tolerated no nonsense, andhad a great eye for detail. Above all, hewas fair and just. He was respected. Mr.Deb, the Chief Law Instructor, hadSupreme Court and High Court rulingsat his fingertips and was a moving legalencyclopedia. He loved law and taughtit with an infectious enthusiasm. He wasthe world’s best law teacher. Mr. Pratt,the Chief Drill Instructor, was a tiger on

the Parade Square, but gentle as a lamboff it. Jim Corbett has described the tiger,as a gentleman, the description wascertainly true of this one. Mr. Pratt, wasloved. The three together epitomizedwhat an ideal IPS officer ought to be:conscientious in the performance ofduty, fair and compassionate intreatment of subordinates, fullyconversant with the laws of the land andcommitted to his constitutionalobligations, and gentle with the citizen.For me, time spent at the CPTC, asprobationer, was worthwhile because ofthese gentlemen.

I am sorry to mention the painfulexperience. Two of my colleagues, andI, tied for the first place in the equitationexamination. The college authorities de-cided to award the Equitation Cup byholding a tent-pegging competition be-tween the three of us. We were allowedto select our horses and practice onthem before it was held. On the day ofthe competition, I found that my horsehad been deliberately lamed the previ-ous night. Someone had slashed the softunderside of its hoof with a sharp blade.Disgust and disappointment were hardlyassuaged by being awarded the SportsCup at the POP.

The probationary course came toan end in December’56 and exactly fiveyears later, in December’61, I was backin CPTC, this time to attend the sixmonths long Advanced Course. Minewas the fourth in the series. The coursehad been designed with great care bypeople who had a feel for training. It wasa programme appropriate for the targetgroup, that is, young superintendentsof police. The CPTC authorities- S.C.Mishra, the Commandant, andE.L. Stracey, the Deputy Commandant,seemed, to hold the belief that, if theparticipants could have been entrustedwith managing the district police, theycould as well be trusted to take part inthe Course responsibly. We weretherefore, very delighted to find thatcompulsion was absent in the scheduleof training. So much so that, formal

classes were only held in the pre-lunchsession. The afternoons were free,though it was expected that we wouldmake use of the library then. Similarly,we were expected to do PT in themorning and play games in the evening,but whether we did so or not, was nevermade an issue of. If any watch was keptto see whether we complied with theseexpectations, it must have been kept asecret. However, as the liberal belief inthe goodness of human nature underlaythe course, it is unlikely that this wasdone. And there was little truancy.

The only classes held in theafternoon were tutorials, once a week,in which we met the AssistantCommandants, assigned as guides, tohelp us prepare the individual and group(Syndicate) papers which we wereexpected to produce at the end of thecourse. We did not have to walk downto our guides’ chambers in the mainbuilding, which was half a kilometeraway. On the other hand, the guidescame over to Palanpur House, which wasour mess and we met over a cup of tea.All of us appreciated this and other actsof consideration shown by the collegeauthorities. For example, at our request,the Commandant withdrew an orderpreventing the participants frombringing their families with them andsome families, including mine, did jointhe participants during this course.

The long duration of the Coursegave us the opportunity to do justice tothe themes, which we had selected forour dissertations. A body of literatureon ‘Police in India’ was built up, Courseby Course, and published. This was thefirst attempt in our country to study thepolice in all its aspects-philosophical,managerial, and operational. DavidBailay, who wrote the first authoritativebook on the Indian police system,“Police and Political Development inIndia”, visited the CPTC whileresearching the subject, made extensiveuse of the Advanced Course papers, andacknowledged their worth. In passing, Iwould like to mention two papers, one

5 Jan - June 2005

written by J.P. Sharma on the ‘DistrictPolice Administration’ and the other byAbraham Varghese on the ‘Chasmbetween Precept and Practice in Police’,as two of the best and recommend themto all young officers. During theCourses, many academicians came asguest faculty and a direct spin-off of theirinteraction with the trainees and staffwas that, some of them developedinterest in the police as a subject forscholarly study and research.

The major contribution of theAdvanced Courses was that theyprovided ample time to the participantsat a very crucial period in their careersto resolve doubts, if any, about theirprofession and their role and place inthe Indian police system. I had hadcertain experiences, which were quiteunsettling. For example, I had beenwitness to burking and fudging ofcrimes; simple vagabonds being roundedup on trumped up charges merely toinflate preventive action figures;suspects being routinely beaten upduring interrogation and, worst of all, astaged encounter in which the deadbody of a dacoit leader, bludgeoned todeath in sleep by another gang member,was shot up the next morning by thepolice and shown as killed in anencounter. The last was a sickeningexperience, which troubled me the most.Had I not attended this Course, I mayperhaps have accepted all this as partand parcel of policing and succumbedto the cynical belief commonly held bymany policemen that, the law was bestenforced by breaking it. It firmed myresolve to act strictly according to thelaw in future, come what may, failure orsuccess notwithstanding.

I believe the Advanced Coursehas been the best training programmeorganized by the CPTC/Academy.

In 1969, I came to Mount Abu as adelegate to attend the POP week. AnAssistant Director, G.K. Kasture, wasabout to leave the Academy on

completion of tenure and he asked mewhether I would like to take his place. Iwas looking for an opportunity to go ondeputation because the schooling of mychildren was suffering in MP, and I saidyes. He took me to meet the Director,B.B. Banerjee, who agreed to have me.So, I was back in Abu again in May 1970.

I stepped into trouble the day Ijoined the Academy as AssistantDirector. My immediate boss and I tookan instant dislike to each other, and wehad to bear up with each other for overa year till he left on transfer. As a partinggift he wrote an A.C.R. in which he foundfault not only with my work but evenwith my face! The latter, fortunately forme, made the bias in the report, soobvious that the report was expunged.It did little damage except for themortification, which I felt when my namewas not brought on the central panel ofDIG.s, when my batch was consideredfor empanelment, because my A.C.R. for1970-71 was blank. He, however, did meone favour. He assigned me the job ofteaching Public Administration, hoping,perhaps, to do me down, as this was asubject I had never studied. This was achallenge, which I had to meet. I studiedand taught it in its modern form ofmanagement studies and have reasonto believe, quite immodestly, that thestudy of management and behavioralscience became acceptable in policecircles thereby. Except for the onehiccup, the five years that I spent at theAcademy as Assistant Director werehappy ones.

This was an important period inthe Academy’s history, for variousreasons. The Academy was agog withexcitement in anticipation of the moveto its permanent home in Hyderabad,where construction was completeand the Academy campus was readyfor occupation. The news came thatK.C. Pant, Minister of State in the HomeMinistry, was to visit the Academy. Allof us believed that he was coming toannounce the government’s decision

sanctioning the move. An exhibition ofphotographs of the new campus wasarranged for his benefit. He came, he sawand he poured cold water on our hopes.The central government had come to theconclusion that the economies of bothMount Abu and Mussoorie wouldsuffer irreparable damage, if the PoliceAcademy abandoned the former and theIAS Academy the latter. Besides K.C.Pant, there was another Minister of Statein the Home Ministry, R.N. Mirdha, andit is believed that Mirdha, who was fromRajasthan, took up the cause of the shopkeepers of Mussoorie, while K.C. Pant,who was from the hills of UP, worked forthose of Mount Abu and scuttled themove. It took us at the Academy quitesome time to recover from thisdisappointment.

The Academy soon had to face acrisis of another kind. There wasconsternation when news was receivedthat a woman had qualified for the IPSand she would soon infiltrate this malebastion. Hurried staff meetings wereheld. Debates ranged about whereshe was to live; what she would wear,especially during PT; how would shebe addressed by the “Ustaads”?Innovative suggestions were made;some one even suggested that sheshould be given a room in the Director’sbungalow. However, in the end the rightdecision was made; no difference wasto be made on grounds of sex — thewoman probationer would live in the IPSMess along with her male colleagues.The storm in the tea-cup was stilled forgood, once Kiran Bedi arrived and didnot ask for any special favours. Theustads solved their own problem bycalling her “Bedi Saab.”

The arrival of S.G. Gokhale asDirector caused much unease becausehe broke deeply entrenched attitudesand practices connected with thetreatment of probationers. He decidedto treat them as responsible adults andtook the revolutionary step, for he wasmuch criticized of permitting married

Academy Journal 6

probationers to bring their families toMount Abu. It was believed that thiswould be the end of discipline, becauseit was presumed that the marriedprobationers would neglect training. Thefear was soon set at rest; a marriedprobationer topped the Course, excellingin both indoor and outdoor subjects.Not only in this matter but in other waystoo, Mr. Gokhale showed that he caredfor the probationers and he was hugelypopular with them as a consequence.

S.M. Diaz took over from Gokhaletowards the end of 1974 and persuadedthe Home Ministry, now headed byBrahmananda Reddy, to agree tomove the Academy to Hyderabad.Anticipating pressure from theRajasthan government against themove, he forestalled a change indecision by establishing a presence atthe Hyderabad campus quickly. As aSenior Course was scheduled to beginin the latter half of January 1975, hedecided to organize it at the new campus.I was in charge of the Senior Course andwas directed to proceed to Hyderabadand make the necessary arrangements;I did so and took over the campus in thebeginning of January from the CISF, whowere using a part of it, for their recruits’training school. They had used only aportion of the campus leaving the IPSMess, most of the Main Academybuilding and the Auditorium untouched.They had however used the suites inthe Senior Officers Mess toaccommodate their recruits and thedining hail as the kitchen. In the few daysthat were at our disposal beforecommencement of the Senior Course, theMess was renovated and furnished.Hyderabad police, the CRPF and CISFhelped in making administrativearrangements. Guest faculty wasarranged from Administrative StaffCollege of India and OsmaniaUniversity. The Senior Coursecommenced on schedule. In themeantime, the Academy staff, their

families and the equipment was broughtin special trains to Hyderabad. Theinfrastructure for the probationers’course was in place when they arrivedin February. Mr. Diaz had achieved amiracle.

I was appointed the Director inDecember 1984, at a very propitiousperiod for training institutions. The PrimeMinister, Rajiv Gandhi, was personallyinterested in training and so were thetwo Ministers of State in the HomeMinistry, dealing with the training ofAll India Services, Arun Nehru andP. Chidambaram. Rajiv Gandhi, who hadvisited the Academy a few monthsearlier had been scathing in his note onits inadequacies and had asked forproposals to be sent to the Governmentfor improvement of the infrastructure.Soon after joining the Academy, I metArun Nehru with the list of proposalswhich would need substantial funds forimplementation. I was quite appre-hensive about their fate, and was reallysurprised when he not only did not turndown the demand but picked up thetelephone, dialed V.P. Singh, the FinanceMinster, and talked to him about theadditional funds required for the NPA.This was not just a flamboyant gesture.Funds did begin to flow in within days.Everything we asked for was given.

Not only funds, taking the cuefrom their political masters the HomeMinistry officials began to take aninterest in the other needs of theAcademy too. Vacancies in the directingstaff were filled up with care and thoseselected and others already in position,were systematically sent for trainingcourses abroad to upgrade theirinstructional and professional skills.BPR&D was directed to assist in theredesign and reorientation of existingprogrammes. Many new short-termcourses were introduced. I wouldparticularly like to mention that theMinistry agreed to our proposal for

broad basing the Senior Courses byallotting seats to the Defence Services,other Civil Services and the Judiciary,and for organizing Re-union Seminarsfor IPS officers on completion of twentyfive and thirty years of servicerespectively. The Ministry also gave usthe responsibility of conducting a partof the Foundation Course for IAS andCS probationers.

Within a short time, the Academydeveloped a training infrastructuresecond to none anywhere in the worldand began to be recognized as a centerof excellence. To top it all, in recognitionof the services rendered since itsinception, the Academy was awarded thePresident’s Colours on its fortiethanniversary on September 15, 1988. Itwas the proudest moment of my life tohave been the Academy’s Director whenthis honour was conferred on us.

When I left the Academy at theend of March, 1990, for my lastassignment in service, I did so with thesatisfaction of having achieved the longcherished dream of being its Director.

NOTEDramatis Personae

J.W. Rodrigues, IPS (M.P. — 1949)

R.K.S.Deb, WBP (later IPS-WB)

S.H.J.Pratt, U.P.P

Sardar Waryarn Singh, IP (Punjab-1941)

S.C. Misra, IP (U.P.1933)

E.L. Stracey, IP (Madras-1943)

J.P. Sharma, IPS (Rajasthan-1954)

A.Varghese, IPS (Karnataka-1955)

G.K. Kasture, IPS (Maharashtra-1952)

B.B.Banerjee, IP (Bihar-1934)

Kiran Bedi, IPS (U.T.-1972)

S.G. Gokhale, IPS(Maharashtra-1949)

S.M. Diaz, IPS (Tamilnadu-1949)

A.A.Ali, IPS (M.P.-1955)

7 Jan - Dec 2005

POLICE AND POLITICS IN INDIABook Review by Shri T Anantachari

There is widespread criticismthat the police in India is highlypoliticized and, what is more worrying,that the police have developed nexuswith criminals too. While the policeperformance in some spheres, which arevery vital to national security andintegrity, has been commendable, thesame cannot be said of the police interms of their political neutrality,partisanship and their links with theorganized- crime world. In spite of sucha stark reality, there has not been muchof a sustained attempt on the part ofacademics, sociologists, politicalscientists and political parties to sparesome time and indulge in a painstakingeffort to understand and remedy thesituation. Newspaper reports on

individual events touching upon thepolice issue are galore. They appearwith unfailing periodicity in thenumerous daily newspapers. But if onewere to look round and search fordetailed, in-depth studies and analysesby journalists and public personalities,one is bound to be disappointed. Maybe because of this, that theoverwhelming majority of the literatureon matters like the philosophy ofpolicing, the role and position of policein a democratic set up like ours, thehuman rights aspect, the crucial role thatlaw enforcement plays in matters ofsocial change and social justice or thevarious facets of violence, includingterrorist violence, all these and more,which are vital to understand and

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assess police performance, have beenwritten by policemen themselves. It isunnecessary to repeat that all thesematters are of vital concern to thesociety as a whole, not merely to thepolice organization. In almost all othercountries, books like the one whichDhillon has written, would in alllikelihood have been written by a non-police research scholar, a politicalscientist, a management expert, asociologist etc.

It is true that when one studiesthe police system in a country, itbecomes necessary to rip open everyaspect of that society, as one can easilysee from the numerous painstakingaccounts in this book. In particular, theChapters “State Police-II” and “StatePolice-III,” besides the chapters on“Sectarian Violence” and “Socio-politicalViolence”, would help the readers toappreciate the wisdom of the aboveobservation in perspective. One canunderstand the reluctance andunwillingness on the part of people inGovernment to undertake such anexercise, but neglect on the part of theacademics and the rest of the civilsociety is puzzling. Such neglect has ina large measure, contributed to thedilatory tactics being adopted bysuccessive governments to promotepolice reforms. It is difficult to think ofmany countries with such neglect bynon-police persons and theirconsequential failure to contribute to theproper understanding and evaluation ofthe police and policing philosophies. Anunderstanding of this situation isimportant and relevant to pass ajudgement on the police problem in ourcountry and the relevance of a book likethe present one. Unless there is genuine

concern and interest on the part of thevarious segments of our country, policereforms, however much justified andunavoidable, will not materialize.Dhillon’s book helps to remind all of usof this important message.

When a person like Kirpal Dhillonwrites a book on “Police and Politics inIndia”, it is difficult not to pay seriousattention to its contents. Dhillon is amulti-faceted personality. His latest bookrunning to 600 pages, is bound to attractwide ranging readership for morereasons than one. He has shared his firsthand experience of a lifetime. That hewas not merely a policeman but anacademic, research scholar, writer and ahuman rights activist - all these andmore, have lent an extra dimension incritically looking at the over-all ‘police-problem’. Those of us who did not getto read his earlier book “Defenders ofthe Establishment: Ruler SupportivePolice Forces of South Asia” have nowan opportunity to make up by readinghis current book.

‘Colonial heritage’ is a muchbandied term whenever the police-problem is discussed. Dhillon has takenpains to bring out the obvious fact thateven after more than 50 years ofindependence, we have failed in manyrespects to set right what passes off for‘colonial heritage’. We are yet toaddress the basic need of our society,namely, a non-partisan and reliablepolice which would be a dependableinstrument for upholding ‘Rule of Law’.Unfortunately, on the contrary, we seemto have gone from bad to worse. Thereis a general agreement that not only arepoliticians interfering in police functionsbut, on many occasions, the police have

also interfered in political developments.Communalism, casteism and regionalismare but a few of the instruments whichmany in the police have leaned on andexploited for securing personal andsectoral interests. Many influentialpolicemen at various levels, havesuccessfully blocked any moves towardsmaking police less open to politicalmanipulations. For many in the police,as is the case with the political groupsand bureaucratic echelons, the presentsystem offers the best possibleprotection against accountability. It isno wonder that the author found a lot ofinadequacies in the training approachto help in improving professionalstandards in the police. Pursuit ofprofessional excellence is obviously thecasualty. What transpires from all theseis that unwillingness to give shape tobasic police reforms and vested interestswithin the system are more importantreasons than ‘colonial heritage’.

The renewed attempt by theauthor to highlight all these and more,has once again raised hopes of widerdebate to pave the way for effectivepolice reforms. In this voluminous book,the author has given extensivereferences for those who may evincefurther interest in the matter. His bookalso can help research scholars to takeup many issues which merit detailedstudy but obviously for reasons of timeand space, the author himself was notable to do. While this book is a welcomeaddition to the literature on police, itwould come in handy as a good andvaluable reference to all probationers inthe police. It is hoped that all policetraining institutions and libraries wouldmake this book a valuable addition totheir existing collections.

9 Jan - Dec 2005

POLICE FROM THE PERSPECTIVE OFPEOPLEP S Bawa

There is often a concern for thepolice-public relations, communitypolicing, people-friendly police, and alot of varieties on this theme. Variousexperiments are tried and left in the lurchto fend for themselves. The object hasbeen to woo the people, so that policebecomes acceptable, popular, andeffective. The attempts so far have beenon the surface and peripheral at best,and ineffective at the worst, having noimpact on the situation and the project.

There are reasons for thisinconsequential outcome. The importantone is that police has been moreconcerned with crime, criminals, andcriminality. If none of these is involved,

the concerns of police are missing. Theychase a criminal after the commissionof crime, investigate a crime, or feeluneasy at the spate of incidents thatremain unsolved. In pursuit of theirends, they get involved in the processof law that they are required to followand fulfill. This is policing from theperspective of police.

It is felt that police is meant onlyto deal with criminals or victims whosuffer the impact, though the latteraspect too goes by default. Even thevictim of crime gets lost in the maze ofprocedural compliance and thecomplexity of the tasks and the resultantdelays. The common perception thus is

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that a common man has nothing to dowith police and hence is not a subjectmatter of concern. In other words, thecommon man who is not a victim of crimehas no place in the priorities of police.The focus on crime alone and the policebeing oblivious of the existence of thecommon man has distanced theorganization from the people who toohave their own problems, partlyconcerned with aspects of crime, andlargely those that have a connectionwith deviance from the norms or justcommon inconveniences that arebeyond the domain of other departmentsbut solvable by police.

It is thus imperative that policemust consider the perspectives ofpeople. What are these? What are theconcerns of people? What are theirexpectations from police? What are theirpriorities? What disturbs them the most?Can police help them within theframework of law, their mandate, andtheir objectives? It is thereforenecessary to examine these questionsfor an appreciation of the role of policein society that goes beyond the dealingwith crime, the basic function, othersbeing no less important. This realizationalone would enable police to come closerto people if the organization so desires.

At the outset it must beappreciated that the majority of peopleare law abiding, if they know what theexpectations of law are and what are thelimits of its tolerance. They aretrustworthy. They love peace, order,non-interference, security, unpollutedair, clean environment, etc. All these arenot possible unless the totalities arecontrolled, regulated, and made to abideby law. So here are some of theexpectations of people from police.

PEOPLE WANT TO BE HEARD

Whenever there is any problem,a citizen wants a solution, preferablyby police, as it is the only organizationthat is accessible. It may be the case ofa missing person, a lost dog, a carcass

lying on the road, a heap of garbagethrown outside the house, a matter ofobstructive parking, or an odd instancethat causes ‘obstruction, in-convenience, annoyance, risk, dangeror damage’ (terms used in Police Act andCode of Criminal Procedure). None ofthese instances may fall within the ambitof crime, or if a crime, may not be acognizable one. An ordinary person, notwell versed in law, does not know thedistinction between cognizable and non-cognizable crimes. He just wants to beheard as there is no other shoulder hecan lean upon.

In a case like this, police wouldoften express unconcern for want of alegal obligation or that this does notform a theme or a mandate of theorganization. Both responses, thoughlegally valid, may be tactically unsound.Police can certainly act even though theissue is not a cognizable crime or onefalling within the police mandate. Policehas two options. One, police can takecognizance of the problem under thepreventive sections of law in case thereis apprehension of breach of peace, sothat the non-cognizable does not takethe shape of a cognizable offence. Theother response, if not possible to handlethe problem directly, can be to intimatethe concerned department for action orseek assistance, wherever it is available.

There are two positive outcomesof this approach. People will have a trustin the efficacy of police and asatisfaction of being heard. The other isthat various departments shall becompelled to design systems to sort outproblems.

No problem is to be consideredtoo trivial to handle. For an individual, aproblem is a disturber of sorts. A cycletheft is a big loss for a poor man. Themissing child for any one is a calamityall by itself.

PEOPLE WANT ORDER

People may not be able to

articulate their need for orderlypavements, roads, traffic, and theconduct of road users. But they like thepavements to be available for freemovement, roads to be wide if free fromencroachments, drivers who do notmess up the common space byundisciplined parking and rash driving.They do not like to be disturbed byavoidable noise of the loudspeaker afterthe permissible hours. Visits to seniorresidents in their homes would be of noavail if the ear-rending amplifiers arepermitted to disturb their sleep and resttill late after midnight on the pretext of acelebration or a propitiation, and it is nosatisfaction that after this noise hasceased, the drumbeats occupy the airspace.

People do not like violation of timelimits by pan shops, the vehiclesregistering their presence with themissing exhausts, or belching blacksmoke, or anything that comes inconflict with law.

PEOPLE WANT POLICE TO ACTON THEIR OWN

Generally, police operates on thereactive mode. They wait some one tocomplain of an inconvenience, danger,risk, or a nuisance. They rarely takeaction on their own. The risk ininforming is inviting an enmity in thevicinity, if the perpetrator is someoneknown or living close by, as theinformation gets leaked about theidentity of the complainant. In fact, allacts of inconvenience are borne bythose who live close. Hence there is lesschance of the disturbed taking the riskof annoying someone in theneighborhood. The people expect thepolice to take stock of the violation andtake remedial measures on their own.They have both the duty and the powerto do so.

People are also not aware of thedistinction between traffic, controlroom, and local police. Their onlyconcern is that the officer whom they

11 Jan - Dec 2005

approach is a police officer and he wouldlisten their problem, irrespective of thespecialized wing he belongs to. It is forthe officer to transmit the concernedbreach and not for the citizen to run frompillar to post.

This may be called the awakeningthe kundalini of power. Use of power isdifferent from the availability of powerto check, restrict, advise, start theprocess if need be, and to enforce law.People want police to use their authorityto deal with the deviators.

PEOPLE WANT TO BE TREATEDIN A DIGNIFIED MANNER

Whatever be the status of theindividual visiting a police station orapproaching a police officer for therectification of a problem, he expects tobe treated courteously and seriously. Helikes his presence to be acknowledgedand not taken lightly. It is irritating if theofficer does not look at him with aninviting and a helpful gaze, if he isignored by the personal distractions ofthe officer, if he is made to sit and keptwaiting without being asked about thereason of his visit. In sum, people donot like to be taken lightly and expect areasonable response form police.

PEOPLE WANT A BETTER IMAGEOF POLICE

People are proud of their police ifit is effective, responsive, andperforming their duty. They want policedo their chores and not idle away time,basking in the sun, reading a newspaperwhen they are expected to respond to aproblem at hand. They dislike the lookof an officer who is sloppy, ill-dressed,casual in his approach and has a poorpresentation of self to the public likestriking a deal with a violator, closing aneye to a violation, denying the existenceof a problem, not looking at thebottlenecks in traffic and doingsomething about the problem. Theywant police to be vigilant to checkaberrations, transparent in dealings and

not arbitrary in their application of law.They expect a certain standard ofdignified morality or moral dignity.

The most despicable sight is thatof an officer, in uniform, violating lawsthat he enforces on others. A policemandriving a motorcycle without wearing ahelmet, a police driver wading throughred light signal even there are noindications of an emergency,obstructively paring his vehicle, orcolluding with a violator are some of theirritating sights. People have their eyeswide open. Though they may not registertheir protest, they do so silently bydiminishing the level of respect. Theyexpect police to comply with rules theyare supposed to enforce. If corruptionis a crime, people grudge its commissionby one who is supposed to catch thecorrupt, whatever be the extent ofbenefits the individual derives foravoiding the enforcement of law againsthim. Therefore, no police person canafford to behave in an illegal manner asit is not condoned by people who makea ‘silent objection’ without daring topoint out bluntly, even when theyconnive at the illegality.

PEOPLE WANT PROMPTRESPONSE TO MANDATORYITEMS

Though not a victim of crime, acommon man has some otherconnections with police. These relate tosome of the mandatory requirements thatpolice alone can solve; for instance,verification of application for passportor employment can only be made bypolice. Similarly, an individual mayrequire a copy of the injury or inquestreport, site plan, or a permissibledocument for seeking compensation inan insurance claim. He may also seekpolice clearance for temporary use ofpublic space for a private purpose like amarriage or a condolence gathering.Such verifications, copies, or clearancesare expected to be done promptly, aspeople have a vital interest. Any delayis likely to jeopardize the interest of the

individual and becomes a liability topolice image.

To fulfill the expectations, it woulddo well for the organization to attend tothis area of administration by makingclear and simple procedures that aremade known to people who could gettheir problems solved. Fee to be levied,if any, for submission of request, timewithin which response is to be made,the officer dealing with it, and theprocedure for redress, if the service isdenied or delayed must be worked outin advance and suitably displayed forinformation.

PEOPLE WANT POLICE TO BEINCORRUPTIBLE

It is no use saying that people getthe police they deserve, thus implyingthat since people are corrupt and seekadvantage, the police perforce succumbto the temptation. The fact is that peopledeserve an incorruptible police force sothat laws are upheld, temptation toimpunity is checked, and there is moreof order, justice, and security. Policepersonnel are not only more disciplinedthan an ordinary individual, they have amandate to perform, uphold the rule oflaw, enforce its tenets, and create a law-abiding society. It is police alone thatcan habituate people to follow law. ‘Zerotolerance’ of violations needs to befollowed not only with regard to trafficbut also relating to other laws. Anyspectacle of violation or deviation fromnorms in the presence of police gives adouble signal of police being ineffectivedue to an act of connivance or sheerlethargy. The danger with impunity isthat, over a period of time, it is difficultto reverse. The process must start sothat people acknowledge the worth ofliving by law. The dragon of law has tostrengthen its grip gradually by makingpeople realize that enough is enoughand there is no leeway hereafter.

Therefore, people want their policeto be honest in dealings and authenticin approaching problems. People must

Academy Journal 12

be supported in their lawful activities.Their lawful expectations must befulfilled. They do not like to be harassed.They had rather like to be told that ‘thiscannot be done’ than given the hopewith conditions attached thereto. They

would appreciate plain speaking,transparent functioning, and openness.They do not like coercive, unnecessary,and illegal use of force, intimidation,threat, fear, dressing down, or any typeof collusion.

Such a police force shall bepopular, have an excellent image, anduseful to the people. This will enhancethe effectiveness of governance thusbringing a lot of incidental benefits.

Steps To Happiness Steps To Happiness Steps To Happiness Steps To Happiness Steps To Happiness

Author UnknownAuthor UnknownAuthor UnknownAuthor UnknownAuthor UnknownEverybody Knows:Everybody Knows:Everybody Knows:Everybody Knows:Everybody Knows:

You can’t be all things to all people.You can’t be all things to all people.You can’t be all things to all people.You can’t be all things to all people.You can’t be all things to all people.You can’t do all things at once.You can’t do all things at once.You can’t do all things at once.You can’t do all things at once.You can’t do all things at once.

You can’t do all things equally well.You can’t do all things equally well.You can’t do all things equally well.You can’t do all things equally well.You can’t do all things equally well.You can’t do all things better than everyone else.You can’t do all things better than everyone else.You can’t do all things better than everyone else.You can’t do all things better than everyone else.You can’t do all things better than everyone else.

Your humanity is showing just like everyone else’s.Your humanity is showing just like everyone else’s.Your humanity is showing just like everyone else’s.Your humanity is showing just like everyone else’s.Your humanity is showing just like everyone else’s.

So:So:So:So:So:You have to find out who you are, and be that.You have to find out who you are, and be that.You have to find out who you are, and be that.You have to find out who you are, and be that.You have to find out who you are, and be that.

You have to decide what comes first, and do that.You have to decide what comes first, and do that.You have to decide what comes first, and do that.You have to decide what comes first, and do that.You have to decide what comes first, and do that.You have to discover your strengths, and use them.You have to discover your strengths, and use them.You have to discover your strengths, and use them.You have to discover your strengths, and use them.You have to discover your strengths, and use them.

You have to learn not to compete with others,You have to learn not to compete with others,You have to learn not to compete with others,You have to learn not to compete with others,You have to learn not to compete with others,Because no one else is in the contest of *being you*.Because no one else is in the contest of *being you*.Because no one else is in the contest of *being you*.Because no one else is in the contest of *being you*.Because no one else is in the contest of *being you*.

Then:Then:Then:Then:Then:You will have learned to accept your own uniqueness.You will have learned to accept your own uniqueness.You will have learned to accept your own uniqueness.You will have learned to accept your own uniqueness.You will have learned to accept your own uniqueness.

You will have learned to set priorities and make decisions.You will have learned to set priorities and make decisions.You will have learned to set priorities and make decisions.You will have learned to set priorities and make decisions.You will have learned to set priorities and make decisions.You will have learned to live with your limitations.You will have learned to live with your limitations.You will have learned to live with your limitations.You will have learned to live with your limitations.You will have learned to live with your limitations.

You will have learned to give yourself the respect that is due.You will have learned to give yourself the respect that is due.You will have learned to give yourself the respect that is due.You will have learned to give yourself the respect that is due.You will have learned to give yourself the respect that is due.And you’ll be a most vital mortal.And you’ll be a most vital mortal.And you’ll be a most vital mortal.And you’ll be a most vital mortal.And you’ll be a most vital mortal.

Dare To Believe:Dare To Believe:Dare To Believe:Dare To Believe:Dare To Believe:That you are a wonderful, unique person.That you are a wonderful, unique person.That you are a wonderful, unique person.That you are a wonderful, unique person.That you are a wonderful, unique person.That you are a once-in-all-history event.That you are a once-in-all-history event.That you are a once-in-all-history event.That you are a once-in-all-history event.That you are a once-in-all-history event.

That it’s more than a right, it’s your duty, to be who you are.That it’s more than a right, it’s your duty, to be who you are.That it’s more than a right, it’s your duty, to be who you are.That it’s more than a right, it’s your duty, to be who you are.That it’s more than a right, it’s your duty, to be who you are.That life is not a problem to solve, but a gift to cherish.That life is not a problem to solve, but a gift to cherish.That life is not a problem to solve, but a gift to cherish.That life is not a problem to solve, but a gift to cherish.That life is not a problem to solve, but a gift to cherish.

And you’ll be able to stay one up on what used to get you down.And you’ll be able to stay one up on what used to get you down.And you’ll be able to stay one up on what used to get you down.And you’ll be able to stay one up on what used to get you down.And you’ll be able to stay one up on what used to get you down.

13 Jan - Dec 2005

CBI - THE ROLE & CHALLENGESU S Misra

INTRODUCTION

This great institute hasmade it possible for me to be here beforeyou today. It is my experience that onlystrong and sound foundations cansupport one’s lofty professionalambitions. The fundamentals that youlearn here in the Academy will be withyou in good stead throughout the longcareers that loom ahead of you.

In simple terms, a criminalinvestigation is the process ofdiscovering, collecting, preparing,identifying and presenting evidence todetermine what happened and who isresponsible. I consider CriminalInvestigation is the cream of police

sciences. The purpose of investigationis not the mere discovery of truth, butthe demonstration of truth beyond allreasonable doubt in a Court of Lawthrough the meticulous collection ofadmissible evidence. Investigation is thebedrock of the criminal justice systemand it is, therefore, most crucialcomponent to run the criminal justicesystem. Any investigation speaks onlywith evidence. Truth stands proud in aCourt of Law only on the solid and soundfoundation of evidence. Any flaws ordefects in investigation are fatal andcannot be corrected by any judiciary,however, committed to justice and truth.

To begin with, I would like to askyou what is common to tigers, trains and

Academy Journal 14

rockets? The answer, dear gentlemen isCBI—all these have been the subject ofCBI investigations.

I will explain the riddle during thecourse of my speech. Some weeks ago Ireceived a call from the Prime Minister’sOffice for an urgent meeting and uponarrival there, the Principal Secretary toldme that the situation relating to SariskaWildlife Sanctuary was very grave asapparently there were no tigers at allavailable there and then added that itwas the desire of the Hon’ble PrimeMinister that the CBI investigate thematter thoroughly and file a Report. Iwas surprised that this was beingentrusted to a Central PoliceOrganization like CBI when there are somany Indian Forest Service officersaround and so many other eminentzoologists and wildlife researchers inthis country, but nevertheless we tookup the matter and after we had filed ourReport, shortly, the Hon’ble SupremeCourt of India has issued a notice to CBIto respond about the demand that CBIshould make enquiries about tigers inother sanctuaries in our country. Theofficers in the team were not wildlifeexperts, they were not attuned toenvironmental issues, but yet theyperformed very well in the matter? Whyis this so? This is because the officersworked very hard and with absolutehonesty. They spent hours gettingattuned to the fundamentals andoperationals of wildlife research, tigertracking, system of keeping tigersurveillance, system of gauging the lifeof a tiger through its body parts, etc.The CBI has come a long way from theinvestigation of corruption cases totracing and safeguarding tigers! It is anorganization which is unique because itcommands the trust of the Parliament,the Judiciary and the Public.

THE ORIGINS OF THE CBI

The Central Bureau ofInvestigation, the premier investigatingagency in this country traces its origins

to the establishment of the SpecialPolice Establishment (SPE) in the Warand Supplies Department by theGovernment of India in 1941 amidst theSecond World War. It was created tocounter and control the menace oframpant corruption that was ravagingthe Ministry. Thereafter, uponconclusion of World War-ll, since it wasalso felt expedient by the Governmentthat such a dedicated investigative bodywas required to investigate and controlcorruption in the other CentralGovernment departments, by a new Act,the Delhi Special Police EstablishmentAct, 1946, the scope of its functions wereexpanded. Its powers extended to coverall the Union Territories and with theconsent of the State Governments, eventheir territories, for acts of bribery,corruption and abuse of official positionfor private gain by central governmentpublic servants. The superintendence ofthe Delhi Special Police Establishmentalso passed over to the Ministry ofHome Affairs. With the passage of time,as more and more corruption cases andother complex cases involvingviolations of the Import Export ControlAct, cheating, misappropriation wereinvestigated by the SPE with a greatdegree of professional competence, thisinevitably led towards the greaterinstitutional expansion of the CBI.

THE EVOLUTION OF THE CBI

On April 1, 1963, following theRecommendations of the SanthanamCommittee Report, the Central Bureauof Investigation was established by aSpecial Resolution passed by theGovernment of India with a singleInvestigation and Anti-CorruptionDivision under an Inspector-General ofPolice, Mr D.P. Kohli. A year later,following the heavy workload ofeconomic and fiscal offences, anotherseparate specialized wing, the EconomicOffences Wing was added to theprevious division, which was re-christened as General Offences Wing.Under the visionary leadership of the

Founder-Director of CBI, the CBI grewin stature—it investigated more cases,it detected more cases, it prosecutedmore cases, it secured convictions inmore cases and it won the appreciationof more persons—its reputation forthoroughness and trustworthiness wasestablished.

One of the paradoxes I havenoticed while serving the governmentis that the more good work you put in,the more work you are entrusted withby the government. With the CBI it wasno different. Its reputation forprofessional efficiency and competencewith impeccable integrity were dulynoticed. The resultant reward—morecases. There was a spate of demands totake up even conventional cases likekidnapping, murder, rape, etc. by theState Governments and theConstitutional Courts—notable amongthem being, the Deendayal UpadhyayMurder case, Bhopal Gas Tragedy, ISROSpying case, Purulia Arms Droppingcase, Beant Singh murder case, HarenPandya murder case, General Vaidyamurder case, Banking Sector Scaminvolving Harshad Mehta, Rajiv GandhiAssassination case, Babri MasjidDemolition Case, Bilkis Bano case,Satyendra Dubey Murder case and evenscores of cases involving atrocitiescommitted against the weaker sectionsof society. The CBI steadily rose instature to command the trust of thepublic, parliament and the judiciary.Thus, the organization has evolved froman Anti-Corruption agency in a singleDepartment to become the only multi-faceted, multi-disciplinary central lawenforcement agency with the capability,credibility and the legal mandate toinvestigate and prosecute offencesanywhere in the country.

THE STRUCTURE OF THE CBI

Today, the CBI has transformedinto an immense umbrella organizationhousing several specializedinvestigating branches/units working

15 Jan - Dec 2005

towards enforcing a broad spectrum oflaws in a court-sustainable manneracross the country. The CBI today hasseven divisions, namely,

• Anti-Corruption Division taskedwith the sourcing of information,registration, detection, investi-gation and prosecution ofcorruption cases.

• Special Crimes Division taskedwith the investigation, detectionand prosecution of conventionalcases entrusted to the CBI forinvestigation by the Stategovernments and/or ConstitutionalCourts like murder, kidnapping,rape, atrocities on minorities andweaker sections of society, theft ofantiques and other nationaltreasures, drug-trafficking, human-trafficking, terrorism, organizedcrime, espionage and so on.

• Economic Offences Division taskedwith the sourcing of information,registration, detection andprosecution of cases involvingviolation of fiscal laws, cybercrimes, crimes against our protectedwildlife.

• Legal Division/ Directorate ofProsecution tasked with renderinglegal advise to the investigatingofficers and prosecuting the caseseffectively in the Courts of Law.

• Administration Division taskedwith handling the administrativerequirements of the organizationincluding, but not only, budgetaryand financial matters, servicematters, recruitment, promotions,deputations, transfers, repatriation,disciplinary proceedings, inter-facing with the Ministry in chargeof the CBI and so on.

• Policy and Coordination Divisiontasked with handling matterspertaining to Interpol includingmaintaining a 24x7 on-lineinterface with Interpol and theNational Central Bureaus of other

member countries to follow up onmatters pertaining to crime and lawenforcement, coordination withother Police Organizations, Govts.in the country, managing the CBICommand Centre and in organizingimportant conferences andseminars related to lawenforcement.

• Central Forensic ScienceLaboratory is a scientific institutionof the Ministry of Home Affairsunder the administrative control ofthe CBI with ten state-of-the-artlaboratories in Ten Divisions, viz.,Physics, Chemistry, Biology,Serology, Ballistics, Documents,Fingerprints, Polygraph and Lie-Detection, Photography andScientific Aids Unit and ComputerForensics and Digital EvidenceAnalysis rendering comprehensiveforensic analyses of evidence incriminal cases.

Today, in the CBI there are 74investigative Branches and 12investigative Units situated all over thecountry, but particularly concentrated inthe capitals of States and other citieslike Dhanbad, Jabalpur, Nagpur, wherethere is a heavy concentration of centralgovernment owned PSUs. In addition tothat there are 6 non-investigative SpecialUnits, 3 in Delhi and one each atKolkata, Chennai and Mumabi, devotedto source, collect, develop and processspecific and actionable information/intelligence about professional lapses,dishonesty and corruption amongst theCBI officers and other CentralGovernment public servants and 3 othernon-investigative Branches/Divisionsrelating to Interpol, Policy, Coordinationand Training.

I would like to say a few wordsabout Interpol here to dispel someexaggerated notions of the functioningof the organization that some of you maybe having. The Interpol does not haveofficers who travel across countriescombating and capturing dangerous

criminals. Interpol is an internationalassociation of Police organizations of allthe member countries dedicated toimproving the liaison between theserespective police organizations towardsthe fulfillment of their relevant policeduties. It has an office (named NCB orNational Central Bureau) in each of themember countries towards attaining thisobjective, which remain continuously intouch with each other and with InterpolHeadquarters in Lyons, France on a24x7 on-line basis to communicate therequirements of a member country toanother. In India, the Interpol Wing ofCBI serves as a liaison point betweenthe State Police Organizations and therespective Police Organizations of othercountries. In every State PoliceDepartment there is an Interpol LiaisonOfficer (usually from the Crime Branchor CID) who routes the requirements ofthe respective State Police through theInterpol Wing of CBI, which then guidesand liaises on his behalf in processinghis requirement. For instance, if acriminal like Dawood Ibrahim is wantedin a case by Mumbai Police, the InterpolLiaison Officer would route his requestthrough the CBI Interpol Wing, whichshall then process according to the laiddown protocol in the required formatand then send it across on-line to theInterpol Wing of Pakistan (or the UnitedArab Emirates, or any other country asthe case maybe) and the InterpolHeadquarters. If further clarifications likeidentification particulars (fingerprints,blood group, moles, scars, passportnumber, last known residence or officein the country, etc) are sought by theInterpol Wing of the requested country,then this too is immediately conveyedto the Bombay Police to provide thesame. NCB Delhi also coordinatesefforts to issue various kinds of noticeslike Red Corner, Blue Corner, YellowCorner Notices and acts as the nodalpoint for investigation abroad.

Crimes : Over the last three years,the CBI has registered 1159, 1068 and1193 cases and disposed of 1137, 1112and 1282 cases. The conviction

Academy Journal 16

percentage in the cases disposed of inthe previous year 2004 is 66.33% andright through the life of the CBI thus far,the conviction percentage has beenaround 70%, which is upto internationalstandards. But we have taken some stepsto improve this percentage by improvingour quality of investigation andsupervision.

THE LEGAL FRAMEWORK OFTHE CBI

The officers of the Central Bureauof Investigation derive their powers ofinvestigation from the Delhi SpecialPolice Establishment Act 1946. This Actconfers concurrent and coextensivepowers, duties, privileges and liabilitieson the officers of the CBI with thePolice Officers of the Union Territories.In addition to that, the CentralGovernment may extend the power withthe consent of the State Governments,to any area in any State. While exercisingsuch powers, the officers of the CBI ofor above the rank of a Sub-Inspector ofPolice shall be deemed to be officers-in-charge of Police Stations of respectivejurisdictions. The CBI can investigateonly such offences as notified by theCentral Government under section 3 ofthe Delhi Special Police EstablishmentAct.

The Central VigilanceCommission Act 2003 grants powers tothe CVC to exercise superintendenceover the functioning of the CBI in so faras it relates to the investigation ofoffences relating to the Prevention ofCorruption Act 1988, although it cannotgive any specific directions toinvestigate or dispose of a case in aparticular manner. This act is an outcomeof the famous Vineet Narain Judgmentof the Supreme Court and you can gothrough this landmark judgment in theCBI website.

SINGLE DIRECTIVE

The Central Vigilance Commission

Act 2003 has also amended the DelhiSpecial Police Establishment Act 1946by inserting Section 6-A, whereby noinquiry or investigation can beconducted against a public servant ofthe rank of Joint Secretary or above inthe Central Government and PublicSector Undertakings owned/controlledby the Central Government. Thisprovision popularly is known as the“Single Directive”, which was earlierstruck down by the Supreme Court inthe Vineet Narain Case as beingunconstitutional. While the purpose ofthis section is laudable in as much as itis intended to only prevent or protectany harassment of senior policy makingofficers from investigation on the basisof frivolous and motivated allegations,our experience in working the section6A reveals that we lack a fail-proofmechanism to speedily, properly andeffectively sift through the allegationsand the grounds, before forming asound opinion about whether or not toallow investigation in the matter. Incertain cases, these delays can be fatalto the success of the investigation - aswe experience.

JURISDICTION OF CBI VIS-A-VISTHE STATE POLICE FORCES

Since Law and Order and Crimeare essentially State subjects under theIndian Constitution, the originaljurisdiction to investigate crimes lieswith the State Police. However, notnecessarily for reasons of inefficiencyof the State Police investigative skills,but for reasons that I need not elaboratein lengthy detail, certain cases aregenerally reserved for investigation bythe CBI, which are:

a) cases involving corruption bycentral government publicservants

b) cases involving the financialinterests of the central government

c) cases relating to the violation ofcentral laws

d) cases concerning megafraud,

cheating, embezzlement ofscandalous proportions relatingto companies and persons

e) cases committed by organizedcrime syndicates or professionalcriminals which have inter-stateramifications and

f) cases having inter-state andinternational ramificationsinvolving several official agencies,where from all angles, it isconsidered necessary that only asingle investigating agency shouldbe in charge of the investigationand

g) cases referred by the StateGovernments and theConstitutional Courts (HighCourts and Supreme Court) tothe CBI for investigation

Here, I also feel it incumbent uponmyself to mention in brief about thesalient procedures necessarily involvedin a typical investigation in CBI, whichipso facto is different from a typicalinvestigation conducted by the StatePolice forces. In the CBI, in any case, ateam of Investigating Officers areconstituted (with the number varyingproportionally with the dimensionalcomplexities of the case) under a ChiefInvestigating Officer, whose work isconstantly and minutely subjected tocalibrated value-added supervision bya hierarchy of officers extending rightup to the Director, CBI. The ChiefInvestigating Officer in the CBI is notthe final authority for decisions inrespect of a case, he is the final executorof the decisions approved by theDirector, CBI. During any typicalinvestigation, the supervisory officers,in addition to facilitating a smoothinvestigation through administralarrangements for camping, logistics,communication facilities, resources,funds, interfacing with the nodal officersof other relevant organizations/agencies/ departments, and availabilityof the most appropriate forensicevidence support in cases, also have tocontribute towards the logical progress

17 Jan - Dec 2005

in the investigation by value-additionin their decisions. In the CBI, proposalsand requests for approval anddecisions, directions, orders and otherinstructions are always given only inwriting. It is this architecture ofprocedural discipline that ensures thetall standing of the CBI.

Would any of you gentlemen beable to tell me, which was the biggesttrain accident in Indian history? It is theGaisal Train accident tragedy, whichclaimed the lives of about 400 personsin northern part of Bengal. When theinvestigation of this case was entrustedto the CBI, all wondered how the officerswould manage the technical complexitiesinvolved, but you may be surprised toknow that what was taught to theEngineering staff in the Railways overtwo years was completely mastered byour officers within two weeks—shunting, track management, signalling,communications, track changing, etc.—and thereafter investigated andprosecuted the case. So you can guagefor yourself that one of the secretsbehind the successes of CBIinvestigations is the dedication towardsthoroughness. The procedures normallyused in day to day operations are firstmastered and then a quick audit is doneas to know whether there weredeviations, if there were deviations,whether these are minor occasioned byoccasional acts of minor negligence orcommon human oversight and whetherthese deviations are major andmotivated by any extraneous factors ormalafide.

RECRUITMENT AND TRAINING INTHE CBI ( HUMAN RESOURCESDEVELOPMENT)

Recruitment in the CBI takes placeby way of -

1) Direct recruitment at the level of

a. Constables,

b. Sub-Inspectors of Police, and

c. Deputy Superintendents of Police

2) Deputation at the level of

a. Constables/Head Constablesb. Sub-Inspectors of Police/

Inspectors of Policec. Dy.Supdt. of Police/Addl.

Supdt. of Policed. Supdt. of Police/ DyIGsP/ Jt.

Director/ Addl. Director/ Spl.Director/ Director

3) Departmental Examination at the levelof Sub-Inspectors of Police open toConstables and Stenographers andMinisterial Staff.

4) Absorption at the relevant levels forofficers on deputation from the ranks ofConstables upto the level of Dy./Addl.Supdts. of Police.

Recruitment of officers ondeputation to the CBI is done on a highlyselective and very stringent basis. TheDirector, CBI is appointed by the CentralGovernment based upon therecommendation of a High PowerCommittee consisting of the ChiefVigilance Commissioner, VigilanceCommissioner, Union Home Secretaryand Secretary, Ministry of Personnel,Public Grievances and Pensions for aminimum period of two years and cannotbe transferred except with the previousconsent of the Committee. IPS officerscan be taken on deputation to the CBIupon completion of seven years ofservice or more in their respective cadresafter their names are recommended bythe aforesaid Committee afterconsultation with the Director, CBI, forappointment to all the posts of the levelof Superintendent of Police and above,based upon seniority, integrity andexperience in investigation in anti-corruption work. Officers appointed inthe CBI to the posts of Joint Directors(equivalent to the rank of Inspectors-General of Police), Additional/ SpecialDirectors (equivalent to the rank ofAddl. Directors-General of Police) must

be cleared by the AppointmentsCommittee of the Cabinet. TheCommittee can, upon consultation withthe Director, CBI, also recommend theextension or curtailment of the tenure ofany officer in the CBI. IPS Officers whocoming on deputation to the CBI for thefirst time have to undergo an OrientationCourse of three months duration.

In view of the escalatoryexpectations of an impatient public thatthe CBI take up investigation in hithertouncharted and highly specialized arenasin diverse fields, the CBI Academy hasbeen designed and re-jigged to catalyzethe transformation of the CBI into amulti- disciplinary investigative agency.It has a well-designed multi-tier trainingregimen in CBI Academy Ghaziabad,whereby CBI staff of various ranks aretrained to meet upto the demandingrequirements of the emergent trends.The CBI Academy is no longer a merefinishing school for an officer cadet. Itis now a continuing school for everypolice official in this country andabroad. Courses are being regularlyconducted for police officers of severalcountries in recent years, like Sri Lanka,Afghanistan, Palestine, Nepal, Thailandand others.

THE ROLE OF THE CBI

(A) In present and emergent nationaleconomy

Corruption by definition is thevery antithesis of public service becauseit is the use of public office for privategain. It means self-advancement at theexpense of societal and nationaladvancement. It epitomizes disservice tothe public. The potential and naturalgrowth and development of oureconomy is serially stunted and deeplydistorted by the devastating effects ofcorruption. The result—our country cannever grow and develop at the logicalpace of its immense potential.Transparency International shows thatIndia is one of the most corrupt countriesin the world. It is rated at 90/145

Academy Journal 18

countries with a Corruption PerceptionIndex of 2.8 on a scale of 10. The paralleleconomy fuelled by ‘black money’including that derived from corruptionis immense and it threatens to infect andoverwhelm the entire national economy.

Contrary to the much touted‘mantra’ that dismantling the Licence Rajwould spell the doom of corruption,liberalization and privatization have onlyfacilitated mega-corruption of suchmagnitude and scope that the nationaleconomy was threatened as borne outby the Banking sector securities scamof the 1990s, (Harshad Mehta & HitenDalal, the MESCO scam, the UTI scamand more recently, the scams ravagingthe Telecom and Construction sectors.Corruption has merely transmogrifieditself into a trans-sectoral, transnationalphenomenon, involving the publicsector, the private sector, civil society,the media, and other relevantinternational organizations. Theconsecutive petty corruption prevalentin the Licence Raj has been replaced byselective grand corruption. The rulesmay change, but the players remain thesame.

An unscrupulous stock-brokerindulging in megamanipulation of thesecurities sector in furtherance ofpersonal gain in another country or in apart of this country can ruin the life-timeinvestments of several persons,bankrupt several companies, desiccatethe spirit of initiative and enterprise inthe financial sector and deprive otherindustries of funds, produce stagnationin various industries in the country,paralyze the national economy at large,trigger a massive capital flight andreduce the financial standing and fiscalworth of the country in the eyes of theglobal community. Investigation as aninstitutional response to crime has beencompelled to change with the pace andcomplexity of events.

The words of Pino Arlacchi,Executive Director of the UN Office for

Drug Control and Crime Prevention(ODCCP), are relevant in the presentcontext, “Never before has there beenso much economic opportunity for somany people. And never before hasthere been so much opportunity forcriminal organizations to exploit thesystem”. Today, because of the greaterorganizational abilities of the organizedcriminal networks, terrorists andcollusive elements (corrupt officers)from society, organized crime hasbecome a virtual “high-gain, low-risk”activity that threatens our state andsociety.

I strongly feel to curb thisapparently irresistible propensitytowards corruption, it is time for us toconsider a law like in the Westerncountries that enables full recovery ofthe total corrupt proceeds and slapheavy punitive fines instead of merelysending the culprit to jail.

The crusade against corruption inthe future cannot ignore the uses andapplications of the latest technology.The history of crime shows that thelatest technology will always be led bymarket forces to be used by theunscrupulous men to further theirselfish ends and that ultimately the lawenforcement use this against them withbetter innovation. The sheerinterdependency of our social lives andthe enormity of the stakes—local,regional, national and transnational—indicates that it is not merely enoughto be forewarned about these potentialdangers, but it is necessary to beforearmed against them so as to be in aposition to neutralize the danger whenit surfaces and mitigate its deleteriouseffects.

Although, as may be seen fromthe annual statistics of last year that CBIhas investigated 1008 cases ofcorruption involving the Prevention ofCorruption Act, 1988, as against 152under economic offences, yet it isnecessary to understand that these are

cases, which in view of the emergenceof the element of organized corruptionare all cases, which also involve otheroffences of criminal breaches of trust,cheating, forgery, falsification ofaccounts, misappropriation, mis-representation of facts, fraud, moneylaundering as also offences under otherrelevant laws—fiscal and specialcriminal statutes. If a corruption caseinvolves only greater magnitude, thedegree of difficulty in investigation issomething that can be surmounted aftera lot of hard work, but when it involvesan element of organization/institutionalization, then the degree ofdifficulty in investigation is often timesaccentuated to insurmountableproportions. This sort of organizedcorruption also results in a constant andsevere drain of national wealth. A typicalexample would be the Bofors case—several players from several fields inseveral countries performing severaldistinct, but related tasks towards acommon objective. Once corruptionbecomes organized, it is very difficult todetect, investigate, chargesheet andprosecute. But nevertheless, throughenduring relentlessness, the CBI hascontinued to do the best it can withinthe last limits of national andinternational law to unearth conspiraciesrelating to organized corruption andthrough such acts play an important rolein preserving a modicum of integrity tothe national economy.

(B) The Role of the CBI in NationalSecurity

As you know many of our regionsespecially North East, Jammu & Kashmirand some areas of Andhra Pradesh,Maharashtra are racked by terrorism andinsurgency movements. In the recentpast a number of important people havebeen targeted by various groups and anumber of important institutions,including the Indian Parliament wasattacked by these subversive anti-national groups. In addition to that thereis a spate of crime relating to theinsurgency movements in the North East

19 Jan - Dec 2005

and elsewhere, particularly in Jammu &Kashmir. The most disturbing thing inthe recent trends in our country relatesto nexus between the terrorist groupsand the organized criminals. The BombayBlast case in 1993 and Haren PandyaMurder in 2003 are a few examples.Similarly organized gangs in CentralIndia especially in UP, Bihar with thehelp of even outside forces havedisturbed the public order throughsurgical strikes. In recent times planeshave been hijacked, leaders have beenkilled, trains have been blasted, oilpipelines have been sabotaged, etc.These incidents due to their very nature,cannot be treated as ordinary crimes.These smack of anti-nationalism andthreaten the integrity and sovereigntyof our country.

In a democracy like India with anindependent judiciary, as law & orderofficers, we cannot afford to pull outour guns and shoot the culprits, but toenforce the law through investigationand prosecution.

In this matter being the Centre’snumero uno law enforcement agency,CBI is entrusted increasingly with casesrelating to terrorism, insurgency,organized crime and by successfullyinvestigating such cases including thosewith international dimensions, CBI hascontributed to some extent in controllingthese anti-national activities throughinvestigating and prosecuting importantcases like IC-814 hijacking case, BombaySerial Blast case, Rajeev Gandhiassassination case, Sardar Beant Singhassassination case, Haren Pandyamurder case, number of cases in Jammu& Kashmir and Punjab, and in the entireNorth East. All I have here to say is thatthese cases are complex with inter stateand international ramifications, highlytechnical in nature and havingcomponents like money laundering tocyber crimes to use of sophisticatedgadgets, etc. But by rising above theordinary, the CBI has investigated such

cases with great credit. A short wordabout cryogenics, space travel and CBI.When the ISRO Spying case wasreferred to the CBI, the team masteredthe basics of cryogenics; rocketry;launching protocols; procurement,usage, operations and disposalprocedures in respect of materialrelevant to ISRO; the entry, internalmovement and exit protocols for officersand visitors in ISRO; the extent ofindigenous use of material; the extentof foreign technological collaborationand assistance, etc., before completingthe investigations and filing therelevant final report in the said case. Inthe CBI prosecution is taken only onthe basis of records.

(C) The Role of CBI inSocial Crimes

Sex-trafficking, trafficking andabuse of minors and humans, mass rapeand other violent atrocities on minoritiesamidst riots or/and other instigatedevents, destruction of valued symbolsand structures of minorities, dowrydeath cases, cases of prostitution aresome recent additions to the alreadyheavy kit of CBI. This is a dangeroustrend, which if not checked in time, andas frequently as these events occurs,can erode the very legitimacy of thesystem itself and bring the downfall ofall societal values established throughcenturies of social revolution andevolution. The demolition of the BabriMasjid, scores of Bride-burning/ dowry-death cases, Sati case of Roop Kanwar,Bilkis Bano case in Gujarat, child abusecases in Goa, etc. reveal that the CBIhas been able to successfully completethe investigation in cases where therewere failures on the part of the StatePolice. The CBI, through a typicalimpartial and thorough investigation ofthese cases and taking action aslogically expected, revives the faith ofthe public in the system and therebyrestores the legitimacy in the system.This is a great social role played by CBI

and I feel this role will be consolidatedmore over the years to come.

IN CONCLUSION...

The perfect investigator is yet tobe born and the perfect investigation isyet to be conducted. Investigation isthe result of honest hard work withinthe framework of the law. It is thebedrock on which the criminal justicesystem rests. It cannot be ignored.Investigation is more a cerebral functionand less, a physical one. It is not themere discovery of truth, it is thedemonstration of the truth beyond allreasonable doubt. I can understand thatyour youthful enthusiasm may have nopatience for the procedural rigours andpatience required of an investigation,but nevertheless my experience andconscience necessitates me to enjoinyou to conduct an investigation withinthe parameters of the law as this in myunderstanding and experience is theonly way to success in investigation.Fair methods of investigation enrich thecriminal justice system and foulmethods impoverish it.

Today, as I approach the sunsetof my long career in public service, Iunderstand that you are in the dawn ofyour career and I can see it in severaleyes here today that you too would liketo join the CBI and perhaps even becomethe Director of CBI someday. How can Ihelp you to reach there? My answer toyou is this: honest hard work within theparameters of the law. This is how I havegot to where I am today. If you arehonest, you will be able to devoteadditional time and the energy to workharder to acquire more knowledge to dobetter, to correct your defects and toimprove upon your strengths and toachieve what others can only wish for. Iwish every one of you a very long andillustrious career in the service of thepublic.

Academy Journal 20

TRANSFORMING POLICE INTO ANEFFECTIVE INSTRUMENT OF PUBLICSERVICE(Prize winning essay in the Prime Minister’s Silver Cup Essay Competition - 2004)

Sankar Sarolia

One does not requiresophisticated empirical evidence tostate that Indian police have not beenable to wipe off the colonialist stigmaof being viewed as an instrument ofcoercion rather than an instrument ofpublic service. Historians have clearlydocumented how the police started asan organ of terror and awe in the handsof an alien power. With independence,the objective of a terrorising force nomore remained. But Indian police haveremained as high-handed and opaqueas they were before. They continue totreat the people with hostility andcontempt and the people still regardthem with a sense of fear rather thanassurance. Often, they function as if in

isolation and are despised by thepeople. So much so that rather thanbeing an instrument of public service,they have become a pariah to thepublic.

In a democracy, police work mustbe discharged for the well-being of thecommunity. For Indian police, achievingthis objective is equivalent to cleaningtheir Aegean stables. Maintaining civilorder requires as much of police actionas of public cooperation with the police.In India, the latter is singularlyinadequate even if the former wasthought up to the mark. People need thepolice, but they do not like them. But,the police could not become an

21 Jan - Dec 2005

instrument of public service unless theyhad people’s unqualified acceptance.This requires a major shift in the waypeople think about the police.

THE NEW ROLE SET

Ideally, in a democratic society, thepolice should play the role of abenevolent protector of people’s rights.They should act as a guardian of civilorder and social justice. The yawninggap between the ideal and the real hasput Indian police and their performanceunder close scrutiny by the public. Withthe pronouncement of the principles ofdemocracy, egalitarianism and welfarestate, the manner of policing shouldhave undergone a sea change. However,the hangover of authoritarianism andnegativism has refused to subside. Atthe same time, the democraticimperatives have brought Indian policeto confront a number of paradoxes of afunctional and behavioural nature. Forexample, on the one hand, they mustmaintain order, which may require useof force, and, on the other, they must bepeople friendly. To an extent, suchparadoxes have prevented the policefrom becoming an effective instrumentof public service. However, the problemsbesetting Indian police are not limitedto paradoxes such as the one mentionedabove. They go much further than that.At the broadest level, they relate toquestions of fundamental importance.For example, what are the police meantfor, whether to be an integral part of theexecutive branch of the modern-daydemocratic government or whether toserve the people regardless of theorientation of the executive?

INSTRUMENT VERSUS PUBLICSERVICE: POLICE AT CROSSPURPOSES

The orthodox view of the police isthat they are part of the executive arm ofthe government and hence an instrumentof law enforcement. But the modern viewregards the police as an agency of publicservice. Obviously, the responsibilities

that an agency of public serviceshoulders have to be in the interests ofthe masses rather than any select groupor set of groups. The democratic andwelfaristic nature of our body politic hasengendered innumerable pieces of sociallegislation which require the police toprovide services in an impartial and fairmanner, with particular regard to the well-being of special deprived groups likewomen, children and the scheduledcastes and tribes (SCs and STs).

However, the traditional role oforder maintenance, the way it isunderstood and implemented, often fliesin the face of this. The reasons are notfar to seek. Our politics, progressive asthey are, promulgate legislation thatentails police action for the benefit ofthe masses. But the governing classeshave a vested interest in not letting thepolice function according to suchlegislation, as they otherwise risk losingcontrol over the police. In order tosafeguard the interests of thecommunity, it is of paramountimportance that the police havefunctional autonomy and a disinterestedapproach, something often precluded bypersistent political and other types ofbureaucratic interference. Amidst sucha tussle, Indian police have tended tolose their direction among conflictingobjectives. It is about time they got theirpriorities right. This returns us to thefundamental question that we raisedearlier: whether the police are anexecutive instrument or whether theyare an agency of public service.

It is instructive to look at the twoapproaches to police in turn in order tobetter understand the implications ofeach.

THE INSTRUMENT APPROACH

When used as an executiveinstrument, the police typically becomean accredited tool of the government forits own survival. Police, being a well-organized and hierarchically arrangedinstrument, are responsible for the

sustenance and maintenance of socialand political solidarity. Those who viewthe police purely as an instrument areinfluenced and impressed by thestructural characteristics of the policeorganisation. This structuralistapproach is traditional and represents aconservative paradigm for delineatingand understanding the role of the policein society. Moreover, it is a narrow, rathernegative, concept, which draws on andemphasises the para-militaristic andmuscle-oriented aspects of policefunctioning.

Arguing for the “instrumenttheory”, Professor Bayley maintains thatthe police as an executive instrument arecompetent to do any job for the simplereason that they are uniformed andvisible. Their activities and functionspercolate down to the grassroots. Theyare a relatively homogeneous group,capable of shaping policy andresponsible for its execution. On thenegative side, they are charged with thejob of arresting and destroying forcesthat sabotage security and retarddevelopment. On the positive side, as acementing agency of nationalintegration, they can act as aninstrument which can insulate societyfrom the jolts of violent socio-politicalupheavals.

THE PUBLIC SERVICE APPROACH

As against the “instrumentapproach”, the other view of policingas a service is a positive and progressiveone. It emanates from the developmentaldimensions of the modern philosophyof policing in a changing society. Onsimple administrative and organization-theoretic parameters, the policeorganisation fits well into the scheme ofa service agency, as it is arranged in ahierarchical order with a view toperforming specific tasks. The liberalpolitical philosophy of a democraticsocial order lays emphasis on equalityin social life and belief in rationality. Thebasic objective of the police in such a

Academy Journal 22

society is to render service to the people.In the Indian context, the constitutionalprovisions, the preamble, the directiveprinciples of state policy and thefundamental rights, all promise thefurtherance of egalitarianism, welfareand democracy. In such a socio-politicaland administrative milieu, the policeought to naturally function as an agencyof service to the people. They are alwaysexpected to ameliorate the state of theweak and the poor. More specifically, thepolice personnel have a basic andfundamental duty to protect andpreserve the rights, privileges andinterests of the STs and SCs and othersocially exploited and downtroddengroups. As an agency of public service,the police have a direct responsibilityfor safeguarding the most basicelements of human life by providingsolace to the people in distress andtribulation.

THE BASIC QUESTION

The basic and fundamentalproblem regarding the police in anydemocracy is how to make them functionas an efficient and impartial lawenforcement agency motivated andguided by the principle of public servicewhile upholding the constitutionalrights of the people. The present debatewhether the police are an instrument ofthe executive or a service agencyoriginates from an unreasonableemphasis on the functional aspects ofpolicing while subduing the significanceof others, especially the behaviouralones. A holistic, balanced and rationalapproach will pay appropriate attentionto all aspects of police functioning,keeping in view the democratic demands,developmental compulsions andegalitarian principles.

WHERE WE ARE AND WHERE WEWANT TO BE

Indian police owe their existenceto the rather antediluvian Police Act of1861. Ever since their inception as aparamilitary organisation, they have had

a negative image, unsatisfactory publicrelations, low efficiency and thus poorperformance. In order to redeem themfrom this pathetic state, a suitable modelof their transformation is urgentlyneeded. One such model is atransformation from a coercive, para-militaristic and muscle-oriented force toa community-friendly service orga-nisation. The National PoliceCommission, 1977 drafted a police billwith the intention of reorganising IndianPolice as a public welfare and service-oriented citizens’ organisation. Thepreamble of the proposed Act makes itclear that the police have to functionboth as an agency of investigation andprevention of crime and as an “efficientand effective agency” for promoting thedynamic rule of law and rendering“impartial service to people”, keeping inview the “requirements of theconstitution, law and the democraticaspirations of the people”. Thepreamble, thus, makes it clear that thepolice in a democracy must work as aninstrument of public service and notonly discharge their traditional dutiesefficiently, but also help bring aboutdesirable social change. The messagethat the preamble of the proposed PoliceAct conveys is more than just symbolic.It is not just about a new law that Indianpolice need. It is about a fresh mindsetand philosophy, a completely differentwork culture and a new set of valuesthat the police will have to adopt if theywish to become an effective instrumentof public service. Ostensibly, thestatement of intent is noble and wellchosen. But things go completely awrywhen it comes to implementation. Theserecommendations are as old as theNational Police Commission itself. Formore than two-and-a-half decades theyhave just remained that, namelyrecommendations. No serious politicaleffort has been made for the proposedreforms. Legislative apathy clearlyshows that the move would entail a majorloss for politicians and other interestgroups in terms of the influence theyare routinely able to exercise over thepolice.

What ought to be done at thisstage is more than just obvious. We nextprovide a list of parameters on the basisof which a proposal for thetransformation of policing in India couldbe constructed.

TRANSFORMATIONPARAMETERS: AN OVERVIEW

Some of the basic parameters forour proposed transformation of Indianpolice into an effective instrument ofpublic service could be the following;

1) Replacement of the negativephilosophy of force with thepositive one of a progressiveorganisation for public service.

2) Shift in the orientation of policefrom coercion to public service;from regular use of force to useof force only in exceptionalcircumstances.

3) Demilitarisation for trans-formation into a citizens’ policeorganisation.

4) Replacement of suspicion andhostility with trust andharmony in police-communityrelations.

5) Development of a freshinterface between the policeand community for beltersynergies in social mana-gement

6) Legislative and organisationalaction to bring about therequisite reforms includingorganisational adaptation,procedural modifications andbehavioural change.

The ultimate objective of all theseefforts would be the transformation ofIndian police into a service-oriented,democratic organisation.

THE MODUS OPERANDI

The desired transformation of thepolice into an instrument of public

23 Jan - Dec 2005

service requires not only a set of well-articulated strategies, but, moreimportantly, their implementation withsincerity and commitment. We mayidentify strategies both at micro andmacro levels.

(I) MICRO LEVELTRANSFORMATION STRATEGIES

The micro level strategies wouldconcentrate on change at individuallevel. This would provide the foundationfor the proposed philosophical shift.Some specific issues of focus are thefollowing:

1) Behavioural change;2) Positive attitude and swift

response to the problems ofcommunity;

3) Greater extra-professionalcontact with the people;

4) Service orientation;5) Individual specialisation and

professionalisation.

We shall now discuss each ofthese micro-level issues in turn.

1) Behavioural Change: All membersof the police should be given a printedchart enunciating the steps and patternsto be adopted by them to make theirbehaviour humane, kind and serviceoriented. Behavioural change is acontinuous process. Its pursuance andmonitoring is required on a routine basis.The role of police leadership in thiscontext is very important. They mustensure that the prescribed patterns ofbehaviour are strictly adhered to and thedefaulting members suitably dealt with.

2) Positive Attitude and Response:People in general feel that the police areindifferent to their difficulties, that theyremain absent during the time of need,and that police response is often of littlehelp. It is hard to deny that quite oftenthe police do not address problems witha professional attitude. An importantfactor, among many others, responsible

for the missing professionalism in policefunctioning is a lack of effectiveorganisational supervision andmonitoring. For example, there are norecords of how long it takes to lodge acomplaint with the police. If there wassome electronic mechanism that couldrecord the report-making time, the action-time and the requisite follow-up of eachmatter handled by the police, it couldsignificantly raise the levels of policeresponsiveness and accountability andsave innocent people a lot of needlessharassment that they routinely undergowhen dealing with the police. Moreover,proper response and timely action willimprove the image of the police and thushelp build a healthy police-communityrelationship.

3) Extra-professional contact with thepeople: Police-community interactionsshall have to be intensified forestablishing a rapport between the twosides. The police should meet allsections of the community as citizens.For example, one way of doing so couldbe attending the meetings of variousclubs and civil organisations. Likewise,the police can organise social gatheringsat various levels, where people fromdifferent walks of life can be invited.These informal interactions will helpshrink the distance between the policeand people.

4) Service orientation: Much ofpeople’s dislike for the police is due tothe very nature of the police work. Inorder to overcome this dislike, the policewill have to widen the range of work theydo by including tasks with an exclusiveservice orientation. For example,occasionally, they can visitorphanages, hospitals, schools, slumsand habitations of the downtrodden andexploited social classes with the aim ofgiving them appropriate assistance,service and help. During natural andepidemic calamities, the police canproactively provide support and reliefto people in distress. Moreover,routinely, they can provide help to the

general public in a variety of ways, e.g.showing a stranger the way, helpingvisually and otherwise disabled peoplecross a busy thoroughfare, advisingpeople on general non-professionalmatters and so forth. Initiatives like thesewill render policing a humane ratherthan belligerent endeavour. In our view,service orientation is the key to theproposed transformation.

5) Specialisation and Professiona-lisation: To a great extent, poorprofessional competence is responsiblefor the poor image of the police. Policepersonnel of all ranks would have toendeavour to make themselves efficientthrough better intra-organisationalcoordination and greater in-house on-the-job training. It is important for themembers of the organisation to activelyshare their experiences and assist eachother. They must attend various in-service training programmes willinglywith the aim of improving their ownfunctional efficiency.

(II) MACRO LEVELTRANSFORMATION STRATEGIES

Macro level transformationstrategies would concentrate on reformsat organisational level. These reformswould be largely of a methodologicaland procedural nature. The macro-leveltransformation strategies could beexecuted at the following levels:

1) Pre-induction stage2) Induction methods3) Post-induction stage4) Placement level

1) Pre-induction stage : At present,recruitment at various levels in thepolice is not based on any prioracademic or professional prerequisites.It would be useful if newly enteringpersonnel had some prior academicexposure to police work and itsrequirements. The police could forgepartnerships with the academia anddesign certificate, diploma and degree

Academy Journal 24

courses in “Police Sciences” at school,college and university levels. Moreover,courses at different levels could becomethe stepping-stone for induction atvarious hierarchical levels. For example,a certificate in Police Science couldentitle a student to be recruited at thelevel of constabulary, a diploma holdercould be eligible for the subordinateranks, and a degree holder could beallowed to compete for State and CentralServices. This scheme would not onlyprovide the police with committedpersonnel but also keep non-seriouspeople away from the police. Mostimportantly, at an academic level, thephilosophy of public-service-orientationin community policing could be instilledin prospective police personnel.

2) Induction methods : After theaforesaid pre-recruitment orientationthrough various academic courses, theactual recruitment would become asort of “selective breeding” conformingto the professional requirements ofcommunity policing. At this stage, thereis a need for more scientific learningmethods rather than the routine, insipidtraining recruits have been gettingfor many generations. Appropriatemeasures should be evolved to examinethe physical fitness, mental awareness,professional suitability and behaviouralcompatibility of persons to be recruitedat various ranks. Various methods ofexamination could be adopted includingwritten and practical tests, casestudies, interviews and casualobservation. Conscious efforts shallhave to be made at this stage to fullydevelop the public-service orientationacquired in a very preliminary way at thepre-induction stage.

3) Post-induction stage: At this stage,it would be necessary to providesporadic reinforcement for the spirit ofpublic service instilled and developed

in freshly inducted personnel. Suchreinforcement could be in the form ofon-the-job exercises as well asstructured intensive training courses.

4) Placement level follow-up andfeedback: Follow-up, monitoring andfeedback after training are as essentialas the training itself. Regular monitoringgives police personnel not only anincentive to keep their serviceorientation but also a chance to getuseful feedback on their efforts.Feedback also facilitates the evolutionof better training techniques.

CONCLUSION

An organisation is an aggregatedwhole of individuals. Also, individualsdraw their identity from the organisation.Individuals and organization arecomplementary to one another. Onedoes not progress to the exclusion ofthe other, but both progress, if at all, intandem. Thus, if individuals improve, theorganisation improves naturally.Likewise, organisational reformsfacilitate the improvement of individuals.From this standpoint, the micro andmacro level police transformationstrategies go hand in hand. Suchcoordinated reform could begin a newera of change and innovation, withoutany major additional expenditure. Thetransformation of Indian police into aneffective instrument of public service isnot a project involving massivemonetary investment at the expense ofthe taxpayers. It involves investment ofa different nature, of conscience, ofthought, and most importantly ofcommitment to the cause of publicservice.

THE EPILOGUE

Admittedly, police work isunenviable. The police are not only

responsible for crime prevention andorder maintenance but also liable for arange of other social issues, whichmakes their remit rather wide. The policecannot just either be an executiveinstrument or a service agency. Theyhave to be both, which involves anextremely subtle balancing act, e.g.between stability and change, force andservice, historical staticism and politicaldynamism, etc. The dilemma of thepolice profession is that combating crimeand rendering public service oftenbecome conflicting objectives. Thechallenge before the police, not just inIndia, but in democracy at large, is howto make these two objectives harmonise.Their equipment is militaristic but theirobligations are social. They mustmaintain order for the benefit of thepeople. But they must fight the obscurecriminal who is one of the very peoplethey must serve unflinchingly. Anyoneappreciating this paradox would realisehow difficult the task of communitypolicing is. Throughout this essay, wehave said what the police should do tobecome an effective instrument of publicservice. We would be remiss if wesquarely blamed the police for theentire set of problems that we haveoutlined above. The relationshipbetween society and an institution isanalogous to the relationship betweenthe institution and the individualsforming it. We have said the institutionand individuals must progress inunison or else they shall not progressat all. A similar argument holds forsociety and the institution. The policemust strive to become an instrumentof public service, but not while theyare derided as a venal and incompetentorganisation, but while they are givenan opportunity to become an agencyof public service, through statute,through organisational reform andmost importantly through aphilosophical reorientation.

25 Jan - Dec 2005

CHANGING FACE OF POLICEMAN ININDIAN CINEMA(Lecture delivered to probationers of 57 RR on 22nd January, 2005.)

Mahesh Bhatt

One particular line ofVallabhbhai Patel, which resonates in myheart as I stand here is “a policeman wholoses his temper, who loses his cool canhardly be pardoned or called apoliceman.” And I found that evenbefore I was born, the directions for thepolice force were already laid down. AndI also conceded to the Academy Directorthat, it is very comforting to realize that,here in this National Police Academythere are individuals, there have beenindividuals, before I was born, and therewill continue to be, after I have gone,individuals to keep the nation sound orto keep it online and try and make itadhere dear to the vision, those lifesustaining visions on which the same

societies are formed. I think I am one ofthese tools brought in by your Academyto help you achieve that awesome taskin these changing times - whether thereis chaos in our civil society. I come fromthe world of movies - movies have beenmy source of livelihood. I stand herebecause I have achieved some kind ofdistinction in the world of movies. Butmy value system was formed muchbefore I joined the world of movies. Ilearnt life’s most basic lessons evenbefore I went to school. I am remindedof a story my mother would tell me as achild, even before I went tokindergarten. I used to give her a toughtime having my late night meals. So shewould tell me that “Son, there are two

Academy Journal 26

dogs in each one of us and they keep onfighting with each other all the times.There is a good dog and there is a baddog. And they fight inside us all thetime.” So I would ask her which dogfinally wins. So taking an opportunityin feeding me with another morsel shewould say the dog you feed the mostwins. If you feed the good dog, the gooddog will win, if you feed the bad dog,the bad dog will win. I think that one ofthe most simple lessons of life told tome by my mother still resonates as Istand here.

Well, there was a time in Indiancinema when the moviemakers fed theimage of the good dog. Kamalji says thatin Hindi movies the cops come at thevery end. Well they came late, even whenwe were toddlers, when we were youngand going to the primary school. Eventhen the cops came very late in thescene. The reason was very simple. It isnot to belittle the cops. It is because themoment the cops came the dramatictension dissolved, the villain did nothave an upper hand. So the trick was ofthe screenwriter. The director was tokeep the cop out of the loop. Notbecause the film-makers of those dayswanted to belittle and humiliate thepolicemen. The moment the cop came,the audience felt “Aha ha, all is going tobe well, and Pran saab is going to bedragged into the jail and the hero andthe heroine will sing the last song andwalk into the sunset”. That was thereason. It was not some vicious design.I remember, when we were growing up,there were tales of great police officersportrayed in movies like Ganga Jamuna.I will never forget that film. Accordingto me, the best film of Dilip Kumar in theIndian cinema, where a rural village manwho is a victim of the zamindar and themoneylender of those times sells hisown pound of flesh to become a policeofficer, but by then unfortunately theodds have turned against him at homeand he is forced to become a dacoit andthe drama is between the brother - theelder brother and the younger brother

played by Dilip Kumar and his youngerbrother by Nazir Khan saheb. Thegreatest Hindi film in which finally tomaintain autistic to the tenets on whichour country is formed, the youngerbrother pulls the trigger and shoots hiselder brother and Dilip Kumar saab diessaying “Hey Ram”. It has never, neverseized to fascinate me. But the dramathrough which the characters go left usspellbound. Even if you watch thosefilms today, that film today, you will becompletely left spellbound. It is aninspiring piece of work. A kind of remakeof that was attempted by Yash Choprajiin Dewaar, which was made with AmitabhBachchan and Sashi Kapoor which havethe same kind of conflict. But those werethe times, when you found that thepoliceman went through the inert.

You see one of the greatestdefinition of drama was given by WilliamFaulkne. Human heart in conflict withitself is the life blood of drama. Gooddrama born within the man. And when acharacter chooses to sacrifice his ownflesh for values, larger values, lifesustaining values which keepscommunities, nation and societytogether that’s when he is worthy ofliving upto the creed which are instilledin you here. I was reading another onequotation on your wall that ultimatelyyou must pursue first to serve the nation,then you serve the comforts of your menand finally your own comfort. There isalso a board, where I saw that your owncomfort comes last. Well you have thosecharacters there acting out these lineswhich were etched there on the walls tolast for ever. And they were portrayedin our movies. The last time I saw a goodportrayal, a fair portrayal, an upliftingportrayal of cops in the Hindi films inthe mainstream in the cinema wasDewaar of Yash Chopraji. It was in 70s.Thereafter a change to the AmitabhBachchan persona of Zanjeer. It wasderived from the angry cop which wasbased on the Hollywood film of ClintEastwood, of Dirty Harry where a copcannot deliver justice by remaining

within the confines of what is prescribed,but has to step out. But as they say, ifyou devour a monster, you become amonster. If the evil man compels you tobecome like him, then he will succeed indestroying you. That’s when the imageof the cop moved away from the GangaJamuna, a portrayal of good cop into acop who behaves like a criminal, whouses the same lingo, talks to the bad manin the same language, not with a dignitywith which a good cop would behave inthe earlier films and the audience clapbecause they found that the goodnessof yesterday was merely bookish. Itwasn’t working in the day-to-day life.When Zanjeer came, there was a majorchange but still the cop was portrayedas good man. Even in Arthsatya, asKamalji mentioned, the cop comes froma small town background. He is not fromthe metros. He also adheres to the valuesby standing up against the localpolitician, the gangster who wants to usepolitics as a means of conducting hisracket. I remember even in my lastdirectorial film Zakhm which had anegative portrayal of cop also, in theclimax of the film, there is a cop who isbeing dominated by the corrupt copfinally stands up and tells the corruptofficer - a Sub Inspector speaks uptohis senior officer that I get the authorityfrom the Constitution of India, not fromyou. I remember when it was beingshown in Raipur, the film was bannedby the Govt. At that time when I washaving a kind of nationwide tourgathering public opinion for the film, Iremember that it was shown to the policeof Raipur. In this show there were onlyconstables and the entire hall clapped.Because they finally found that therewas a constable level character whostands up against his evil boss and doeswhat is prescribed by. But somewherethings did went wayward.

But I don’t think I can stand hereand defend my fraternity for being lazyand not doing sufficient research andnot even making interesting films thatcontributed to the police forces image

27 Jan - Dec 2005

being really destroyed in the publicperception. But I would also tell onething, some painstaking thing that thepolice is also responsible to a largeextent because you can’t correct yourvirtual image and hope that it goes onwith the people well in the day-to-daylife. They find that the face of the policethey actually deal with is quite differentfrom what they portray on the screen.Because, it is just like, say diina thodkaraap naak seedi nahin kar saktein. Iremember when the underworld was infull boom in Mumbai recently where themedia went to town and over-exaggerating the nexus betweenBollywood and the underworld and theygot good TR ratings and sold thenewspapers, there was an attempt madeby the then Commissioner to kind ofintimidate the film industry and bringabout some kind of law in the filmindustry which prevents them fromportraying police people in bad life. Nowthat was pathetic. Because I know theway the police behaved in those days,the way they played into the hands ofthe local politicians for their ownbenefits. And the entire society inBombay was buzzing with tales of howthe police officers were eating out of thehands of the politicians to settle, to getbenefit from them. When you behave ina manner and in the next breath demandthat they should be portrayed well, it isnot going to happen. When I look backinto my own life I am reminded of anincident that took place when I justbegin my film career in 1973. I had justbecome father and I was a strugglingfilmmaker and those were the days ofemergency. I remember one day I camehome from a film party. I had a few pegsand I was a sort of little high. And whenI came home, and my little daughter Puja,she was about 6 months and she hasvery high fever, almost 105, and my wifewas panicky and my house wasincomplete, an historical house. So I ranacross to the hospital which was justacross the street. And there the doctoron duty was reading James HardleyChase. And I went to him and told him,

“Sir I just stay across the road. Wecannot find a doctor, my daughter is verysick. Can you just come and attend toher, we cannot bring her here, she isshivering. And he arrogantly said, “NoI will not do it. You bring her here”. Isaid, “I can’t bring her here, it is raining,I can’t bring her here, she’s got fever”. Isaid, “you are doing nothing, comeacross”. The man was impertinent and Ilost my cool, which I shouldn’t have.But I am an ordinary man - live in civilsociety, drunk, emotionally provoked bythe situation. So I grabbed him by hiscollar, by then I was overpowered bythe ward boys. And the police came andthey took me to the police station. Andin the police station, what I expected didnot happen. There was a constable, whowas on duty, who heard me and alsoheard the version of the doctor. And inhis wisdom he turned around and saidto the Doctor, “the man is young and heis high, he has a child, who is sick, youwere sitting down and doing nothing.The least you could have done isrespond humanly and gone across”. Ifhe wanted, he could have locked me up.But he used his wisdom and did not lockme up and did not aggravate thesituation. But after he had shouted atthe doctor, he took me aside and toldme, “Listen, this is not a Hindi film scenewhere you go into hospital and grabpeople by collar.” The warmth, theconcern and the sense of deliveringjustice in that constable still resonatesin my consciousness and I portrayedthis man in one of my films - it is called“Aashiqui”. And I have such severalwarm memories of my introduction ofpolice which I have blend into my films.But when I go to Gujarat, and I find thatwhen the complete law and order systemcollapses, and when the highest policeofficers occupying the highest chair,when I go to him and tell him about theurgent need to attend to the grievancesof the victims of the carnage, the maninstead of instilling confidence in me andhope in me, folds his hands and says,“Mr. Bhatt, you are a celebrity, pleasego away, there is a danger to your life”.

I find that pathetic. Now you cannothelp me from portraying that man alsoin memory. You cannot be selective. Youcannot say only portray me. I am not ina PR exercise here. I am not going toindulge in a PR exercise. I will portrayyou positively, I will applaud for yourcourage. I will thank you for looking afterme and my kind. But what if you do notdo what you swear to do here. When Itrust you with the lives of mine, my wifeand my children, when I am out at workand when you violate that trust, by God,Ishwar, I am going to make sure that Iwill scream and say, what your real faceis. And that is my right. And that rightcomes from the same source from whichyou get just your right to go all out thereand make me fall in line if I violate it. SoI think what is important to know is thatin these times it is getting progressivelydifficult for anyone in any field of life tostick to the moral values, which I havefound, our fathers and our grandfathersspoke about and make a decent living.We will always be tempted to be seducedby those forces which we call evil. Well,you people are choosing the life of apriest. You are choosing to be rolemodels. In moments of chaos we lookup to you. We look to you for answers.If you don’t have it, you don’t do it.Because when all sanity is lost, when allhell breaks loose, I look towards mypolice officer to show me the way. Andif you cannot show me the way and youbehave just like the brute next door, thenyou have the society of today. So this isthe world that you are getting into, thisis the beginning. From here either youascend towards the highest peak wherepeople will applaud you years from nowor from here you begin a journey downinto the quagmires of hell by youbecome like anybody else. You will beone of those police officers who usesyour uniform to belittle, humiliate thecommon man whom you pretend toconcerned for. Or you would be one ofthose rare people, who have doneeverything to adhere to the principles,on which our founder fathers fought forthis country’s freedom. The choice is

Academy Journal 28

yours. And it is a difficult choice. Iunderstand this. But at least here, I seeno cynicism. I see that there isinnocence. I see a commitment to thevalues, those life sustaining values. I seeki yehan to kum se kum Ganga josaafhein, paak hein, woh merejism selag kar gandi hojaathi, voh alag bathhein. Kunki, I being what I am, I cannotbut turn you like me, but you need tofight me. Because you have chosen thisextraordinary job of being a policeman.There is some mistake in staggering datathat was given to me that more policeofficers die than army officers in a warsituation. You lose 1500 people, in Kargil,but and I am told 900 police officersevery year lose their lives in line of duty.Yes, we applaud you, we salute youbecause you have chosen to do this.And only when in real life when thebehaviour of the policeman changes,will they begin to reflect positively inthe movies. Or by introducing some kindof law you can do what that senior officerin Mumbai tried to do, is to bring outsome legislation. Then I said you willonly break the mirror and not correctyour face. The choice is yours. I thinkthat most difficult thing to do is, to goout there in the trenches of society andbe what these words are, not pretend tobe that. Because the world sees you,you are what you do. Not what you sayyou are. When we make movies I alwaystell my actors “you know a character iswhat he hides, not what he reveals”.And the common man has a way offinding out what you really are. If youdon’t walk here, you will be talking likethe politician or like that holy man,whose words are just empty words. Andwhenever, in our life we have met apolice officer who has indicated to usthat he has the sanity not to be biasedor to be partial, but to use his judgmentfairly, he has left a trace of him. Thereason I talk about that police officer,who is an anonymous man who willnever be, even I do not remember hisname, I pay tribute to the constabularywhich is ultimately asked to deliver theresults in the field. I know there thehandful of officers that when they go,

they cannot but depend on theconstabulary to deliver what they aresupposed to do. But I have seen that.And when I have seen that I talk aboutthat. But when I see a senior most policeofficer do what he did in Gujarat, andthen become a part of the crookedsystem to cover up and not to expresseven remorse. You use all your energyto not only subvert but then you spendthe entire energy and become a part ofthat crooked power hungry politicalgroup to conceal your barbarism andthen you expect me to portray you fairly?I am not going to be a part of the PRdepartment. But when I see couragethere, when I see attempt, even if youfail, at least attempt to courage them. Besure that, we for our own survival builtand when the public rubs or comes incontact with you and sees your real faceand if I portrait them badly, the publicwon’t buy tickets to see a wrongportrayal of the police. There was a timewhen the police was portrayed properlybecause the police was like that.Otherwise, you know United States ofAmerica, you will do barbaric deeds,bomb the day lights out of Afghanistanand Iraq and do a PR exercise throughNew York Times, CNN and BBC andexpect the world to kneel down and saythat “Oh! you are saviours of the world,its not going to happen. Fifty percentof United States is against George W.Bush. And just because you winelections, and you got this brute powerdoesn’t mean that you are looked uponas the saviour of the world. Similarly, thepolice. Unless nobody can belittle ormock at Nelson Mandela - NelsonMandela is not dependent on the worldmedia for his portrayal, to be portrayedwell by anybody - he is what he is. Thepower he gets is from his own action.He was 28 years in the prison of RobbenIsland, and then steering South Africato what it is today. He is not dependenton CNN or the PR exercise, or he didn’trequest, please portray me as a goodman or the Gandhi of the 21st Century?No. Geroge W Bush is. He needs it. So Iwould say, the choice is clear. Do youwant to have the moral stature of Nelson

Mandela? That is the life you arechoosing. I am a weak man, I am aconfused man, I am vulnerable tooutburst of anger of greed - you arethere. How are you going to stop mefrom being that. And how are you goingto stop yourself from not convertinginto a person like me. And that is a verytough call. I don’t have simple answers.I cannot sit down and say choose thatlife of martyrdom, sacrifice all that youhave, just because you have chosen tobe a police officer, because I know thischoice is very easily flaunted fromplatforms like this, but when you gothere and live it, it is very, very tough.But I know that the world today isstitched together and it is what it isbecause there are people there, there areinstitutions like the National PoliceAcademy, which are at its source tryingto instil in individuals like you, who willgo out there and govern the world to bea sane place exactly built on theprinciples of our founder fathers. Thatis why the world is sane. Somebody,somewhere is doing the right thing. Thatis why we are still together. The policeis the glue, police has to keep on playingthat role - I know that its a thanklessjob. But yes, I would certainly carry theimpressions I have gathered from hereand I think some kind of a beginningshould be made, where the people fromthe entertainment world are broughtregularly here to have some kind ofinteraction, so that they can becomeambassadors of what you have here.Only individuals can perhaps becomeconduits of this kind of spirits that youhave here. And may be the starknessthat looms over our head can finely bedisorder, I was reading another line,“Don’t curse the darkness, light acandle”. When you are lighting a candle,then I applaud you for that. With all thecorruption that I have faced in my 55years of life in the police department, Icannot forget the good deed of thatconstable. I cannot forget the good deedof a few police officers whom I met inmy most trying moments who despiteof, though the seniors said, “stick to theline of duty”, and those people should

29 Jan - Dec 2005

be portrayed aggressively. Unfortunately,it doesn’t happen. But as I said, oncewe become a Nelson Mandela then youdon’t depend. Then the media willportray you the way you are and even ifthey don’t give us time to think.

It is a privilege standing here withyou and talking to you and I am verygrateful, to the Director of the Academy,for giving me an opportunity to comehere and to widen my understandingabout the police force, which is a very

important limb of my day-to-day life andI will carry back memories of this placeand I hope to maintain a vigorousexchange with all of you.

Thank you very much

A Walk In The Mountains A Walk In The Mountains A Walk In The Mountains A Walk In The Mountains A Walk In The Mountains Author UnknownAuthor UnknownAuthor UnknownAuthor UnknownAuthor Unknown

A son and his father were walking in the mountains.A son and his father were walking in the mountains.A son and his father were walking in the mountains.A son and his father were walking in the mountains.A son and his father were walking in the mountains.Suddenly, his son falls, hurts himself and screams: “AAAhhhhhhhhhhh!!!”Suddenly, his son falls, hurts himself and screams: “AAAhhhhhhhhhhh!!!”Suddenly, his son falls, hurts himself and screams: “AAAhhhhhhhhhhh!!!”Suddenly, his son falls, hurts himself and screams: “AAAhhhhhhhhhhh!!!”Suddenly, his son falls, hurts himself and screams: “AAAhhhhhhhhhhh!!!”To his surprise, he hears the voice repeating, somewhere in the mountain:To his surprise, he hears the voice repeating, somewhere in the mountain:To his surprise, he hears the voice repeating, somewhere in the mountain:To his surprise, he hears the voice repeating, somewhere in the mountain:To his surprise, he hears the voice repeating, somewhere in the mountain:

”AAAhhhhhhhhhhh!!!””AAAhhhhhhhhhhh!!!””AAAhhhhhhhhhhh!!!””AAAhhhhhhhhhhh!!!””AAAhhhhhhhhhhh!!!”Curious, he yells: “Who are you?”Curious, he yells: “Who are you?”Curious, he yells: “Who are you?”Curious, he yells: “Who are you?”Curious, he yells: “Who are you?”

He receives the answer: “Who are you?”He receives the answer: “Who are you?”He receives the answer: “Who are you?”He receives the answer: “Who are you?”He receives the answer: “Who are you?”Angered at the response, he screams: “Coward!”Angered at the response, he screams: “Coward!”Angered at the response, he screams: “Coward!”Angered at the response, he screams: “Coward!”Angered at the response, he screams: “Coward!”

He receives the answer: “Coward!”He receives the answer: “Coward!”He receives the answer: “Coward!”He receives the answer: “Coward!”He receives the answer: “Coward!”He looks to his father and asks: “What’s going on?”He looks to his father and asks: “What’s going on?”He looks to his father and asks: “What’s going on?”He looks to his father and asks: “What’s going on?”He looks to his father and asks: “What’s going on?”The father smiles and says: “My son, pay attention.”The father smiles and says: “My son, pay attention.”The father smiles and says: “My son, pay attention.”The father smiles and says: “My son, pay attention.”The father smiles and says: “My son, pay attention.”

And then he screams to the mountain: “I admire you!”And then he screams to the mountain: “I admire you!”And then he screams to the mountain: “I admire you!”And then he screams to the mountain: “I admire you!”And then he screams to the mountain: “I admire you!”The voice answers: “I admire you!”The voice answers: “I admire you!”The voice answers: “I admire you!”The voice answers: “I admire you!”The voice answers: “I admire you!”

Again the man screams: “You are a champion!”Again the man screams: “You are a champion!”Again the man screams: “You are a champion!”Again the man screams: “You are a champion!”Again the man screams: “You are a champion!”The voice answers: “You are a champion!”The voice answers: “You are a champion!”The voice answers: “You are a champion!”The voice answers: “You are a champion!”The voice answers: “You are a champion!”

The boy is surprised, but does not understand.The boy is surprised, but does not understand.The boy is surprised, but does not understand.The boy is surprised, but does not understand.The boy is surprised, but does not understand.Then the father explains: “People call this ECHO, but really this is LIFE.Then the father explains: “People call this ECHO, but really this is LIFE.Then the father explains: “People call this ECHO, but really this is LIFE.Then the father explains: “People call this ECHO, but really this is LIFE.Then the father explains: “People call this ECHO, but really this is LIFE.

It gives you back everything you say or do.It gives you back everything you say or do.It gives you back everything you say or do.It gives you back everything you say or do.It gives you back everything you say or do.Our life is simply a reflection of our actions.Our life is simply a reflection of our actions.Our life is simply a reflection of our actions.Our life is simply a reflection of our actions.Our life is simply a reflection of our actions.

If you want more love in the world, create more love in your heart.If you want more love in the world, create more love in your heart.If you want more love in the world, create more love in your heart.If you want more love in the world, create more love in your heart.If you want more love in the world, create more love in your heart.If you want more competence in your team, improve your competence.If you want more competence in your team, improve your competence.If you want more competence in your team, improve your competence.If you want more competence in your team, improve your competence.If you want more competence in your team, improve your competence.

This relationship applies to everything, in all aspects of life;This relationship applies to everything, in all aspects of life;This relationship applies to everything, in all aspects of life;This relationship applies to everything, in all aspects of life;This relationship applies to everything, in all aspects of life;Life will give you back everything you have given to it.”Life will give you back everything you have given to it.”Life will give you back everything you have given to it.”Life will give you back everything you have given to it.”Life will give you back everything you have given to it.”

YOUR LIFE IS NOT A COINCIDENCE. IT’S A REFLECTION OF YOU!YOUR LIFE IS NOT A COINCIDENCE. IT’S A REFLECTION OF YOU!YOUR LIFE IS NOT A COINCIDENCE. IT’S A REFLECTION OF YOU!YOUR LIFE IS NOT A COINCIDENCE. IT’S A REFLECTION OF YOU!YOUR LIFE IS NOT A COINCIDENCE. IT’S A REFLECTION OF YOU!

Academy Journal 30

MODEL ACTION PLAN FOR MAOISTINFESTED REGIONGiridhari Naik

Action asks for action plan,action plan needs scenario planning.Scenario planning with conceptualelegance is essential for fighting againstleft wing extremism. Scenario planningand agenda setting shape the salienceand substance of action planning. Theaction plan is basically an agenda setter;it sets the agenda for the purpose ofsystem building, security building andforce building. So, a good exhaustiveaction plan needs to be formulated withthe objective to develop a system tofight Maoist menace, contain it andultimately eradicate the evil. With theabove objectives in mind, theanticipated needs and felt needs of thearea, the police force and different other

branches of administration have to beconceptualized, strategized andencapsuled in the form of a ModelAction plan. The issue of proportionand imagination with regard to theoverall system’s requirement must betaken into consideration while shapingthe Action Plan. The Model Action planhas 3 broad aspects, viz:

1. Policy Plan.2. Operational Plan.3. Organizational Plan.

POLICY PLAN

The Maoists are outadministering the area by violence,

31 Jan - Dec 2005

propaganda; and by the paralleladministration by their organization. Ininterior areas they have destroyed theadministrative and democratic fabric ofthe area. So, to marginalize the Maoistand defeat their sinister intention andto restore civic administration in theinterior areas, a grand policy ofredemption has to be carefully chalkedout. This grand policy must havecorrect, appropriate sub set of policies.

If the policies are correct then anynumber of tactical errors will not createmuch damage for a party to fight thebattle. If the policies are wrong then, inspite of huge tactical advantages, theside will be defeated. In the context ofMaoists it has become crystal clear thatpolicy induced setbacks have hamperedanti extremist operations to a large extent.So, the policies have to be properlydovetailed. For the purpose of actionplanning the policies can be broadlydivided in to two categories:

1. Policies related to policedepartment and other securityforces with direct bearing onMaoist problem.

2. Policies related to otherdepartments of Govt. and aswell police with indirect butgreat bearing on Maoistproblem.

Policies related to policedepartment and other security forceswith direct bearing on Maoist problem.

• Surrender policy/ Rehabilitationpolicy

• Response to problems likekidnapping by Maoists

• Incentive policy

• Propaganda policy

• Security policy

• Policy against infiltration ofMaoists in to govt. departments.

• Policy to provide MagisterialPower to SDOPs.

Policies related to otherdepartments of Govt. and as well Policewith indirect but great bearing on Maoistproblem.

1. Policy on vigilance action

2. Transfer policy

3. Village development policy

4. Policy on smooth running ofschools, hostels and BalakAshrams

5. Policy on unemployment

6. Road construction policy7. Social welfare policy8. Health policy9. Policy on encroachment of

govt. land10. Model village policy11. Policy of clustering of govt.

buildings12. Town planning in Maoist

infested area.13. Policy on PDS14. Policy about forest produces15. Policy to monitor and review16. Policy on restoration of civic

administration

The Govt, has to formulateappropriate policies on the above itemsto rejuvenate the system. Some of thepolicies on the above issues exist, butnot in the form which fits into Maoistsinfested area. These policies have to beclosely tailored to counter extremistactivities.

In the past, some wrong policiesof talk with Maoists without resolvingthe issue of surrender of weapons,distribution of land to land less people,release of arrested Maoists, withdrawalof criminal cases of Maoists had onlyhelped the Maoists giving themlegitimacy and helping them in swellingtheir support base. On the other hand,these policy fiascoes have cornered theGovt., demoralized the administrationand put the Govt in a very awkward

situation. Through appropriate andcorrect policies a number of wellcoordinated and well synchronizedactions on a number of fronts can betaken to redeem the situation.

OPERATIONAL PLAN

Combat power comes from soundoperational plan. Well laid outoperational plans are required to achieveand maintain the momentum ofoperations. It must have offensive anddefensive components. Defensivecomponent speaks about security planof police stations, D.R.P.Lines, BattalionHQs and District Head Quarters andSub Divisional head quarters. Theoffensive plan must have the policy of‘clear and hold’, ‘search smash’ policies.Operational security must have primeimportance, while formulatingoperational plans.

Operational plan must perfectlydeal with tactical environment andsituation. Tactical environment andsituation provide pictures about theextremists, terrain, topography, andground situation, the estimate of thesituation, the scope and complexity ofthe problem. The operational plan musthave the crystal clear concept ofoperation from start to finish. The briefskeleton of the operational plan have thefollowing elements:

• Objectives of the operation - Theout come of any campaignhinges on the identification andmaintenance of the objectives ofthe operation. So, the objectivemust be clearly defined, decisiveand attainable.

• Force requirement - Area, taskand enemy strength have greatbearing on the strength of forcerequired in any area. Theprinciple ‘A good attack plancalls for gathering a strong force’should be adhered to whileprojecting force requirement forany operation.

Academy Journal 32

• Reconnaissance plan. - Whileconducting large scale operations,physical reconnaissance,photographic reconnaissance,and aerial reconnaissance of thearea must be done.

• Deployment plan - Ability todeploy effectively and sustaincombat forces is very crucial forfighting. So, proper deployment offorces in right number at strategicplaces will help in harvestingoperational opportunities.

• Combat support service plan -Conducting operation againstLWE means waging a protractedwar. In a protracted war, the force,require a number of supportservices. Replenishment of ration,water, arms, ammunition, batteries,P.O.L., etc., are very importantaspects. Medical aid, casualtyevacuation, post-mortem facilitiesare other important supportservices. Transportation, commu-nication, bomb disposal andintelligence collection are thecrucial support services.

• Assault plan - No plan eversurvives the contact intact. But,even then, the meticulouspreparation of assault plan givessecurity forces an edge over theenemy. So, it must incorporate theminute details of operation. Thedifferent types of operations to beperformed in any area and thedifferent stages must be clearlychalked out. It must be areaspecific and task specific.

• De induction plan - Afterachieving the objective, the extraforce mobilized must be de-inducted. The de-induction planmust have security element.

ORGANIZATIONAL PLAN

Operations cannot be sustainedwithout sound organizations. So,organizational planning has to be done

in such a manner that the organizationequips itself to face the onslaught ofMaoists. Organizational planningconsists of:

1. Institutional planning2. Manpower planning3. Infrastructural planning4. Resources planning

INSTITUTIONAL PLANNING

Institutional remedies shouldemerge to confront the depredations ofleft wing extremism. Maoists haveformed a network of organizations toextend their sphere of influence. Theinstitutional reorganization rejuvenationof security forces have to be done tocounter, growing network of Maoistsand their honey comb secret anddivisive organizations. The left wingviolence breaks down the institutionalframework. So, a lot many institutionshave to be created which will form theframework of a system to fight theMaoist menace.

• Intelligence unit: MoreIntelligence and selective forcecan defeat the guerrillas. So,dedicated full fledged intelligenceunit is required to collect andcollate intelligence. The unit musthave well trained personnel andequipment to deal with humanintelligence and technicalIntelligence.

• Govt Railway Police unit : Someof the important Railway Stationsdo not have Govt. Railway Policestations. These Railway Stationsare used by Maoist for transitpurpose. The Government mustestablish GRP Stations atimportant Railway Stations.

• Commando unit: A coherentspecialised fighting force of junglefighters have to be raised to takethe war to the Maoists on theirown ground. The hunter killerteams get much success againstthe Maoists. Crack counter

extremist units must be maintainedin a high state of readiness tocombat the menace.

• Training unit: A jungle warfaretraining institute is required toimbibe a new set of operationaland survival skills among thepolicemen. “Training hard andfight easy” dictum is the rockbottom doctrine of counterinsurgency operations. Junglecraft training is essential forfighting the Maoists. Wellequipped, properly manned,training institute with correctlydesigned curricula can only trainthe manpower to counter guerrillawarfare by the Maoists.

• Full lime Supervisory officers foroperations: Each district musthave posts of Dy. S.P. operationsfor better management of anti-Maoist operations. It is very muchrequired for making the operationseffective and continuous in anyperiod of the year. Since the S.P.of the district remain most of thetime busy with V.I.P. duty, law &order problem, conventionalcrime- he can’t devote much timealways. Where as anti-Maoist op-eration is a very demanding taskconsisting of a lot many sub-tasks, e.g., man power planning,logistics, intelligence, communica-tion, coordination with otherforces and intelligence collection.Again, in the extremely infestedrange, a Dy. Inspector Generalmust be assigned with the task ofoperational management. Theseposts can definitely do justice tothe operational responsibilities inthe region.

• More number of compact PoliceSubdivisions.

• For ensuring basic policing eachsubdivision should be compact.The span of control of eachSDPOs must be three to fourpolice stations. Now, besidesadministrative work, much

33 Jan - Dec 2005

mandatory investigation work hasto be done by Dy. S.P. The SDPOsmust be entrusted with magisterialpowers to maintain peace andmaintain good behaviour amongnotorious characters.

• Legal units: Legal units have tobe created at Police Head Quarterlevel to deal with court cases relatedto different cases arising out ofcounter measures of the securityforces.

• Printing unit: A small unit has tobe established at PHQ level, sothat different sensitive documentsrelated to training and othermaterials documents can beprinted at the unit.

• Establishment of new PoliceStations: The roots of leftwingextremism lie in the lack of effectivestate presence across largeswathes of forested areas of thecountry. So, a number of PoliceStations have to be established atstrategic places. In extremelyMaoist affected areas, thejurisdiction of each Police Stationmust be about 100 Sq.Kms. Inhighly infested areas, each PoliceStation should have 300 sq. Km.jurisdictions. In mildly infestedareas, the Police Station must haveminimum 400 Sq.Km. jurisdictions.But, unfortunately in extremelyinfested areas the jurisdiction ofsome of the Police Station exceedsfive hundreds Sq.Km. and in otherareas each Police Station hasjurisdiction of more than 1000 SqKm.

• Establishment of cultural troupes:Chetna Natya Mandli - the culturalwing of Maoists conduct masspropaganda in rural areas byperforming dance and songs. Tocounter the propaganda done byMaoists, security forces shouldhave cultural troupes of localpeople who with police escort cango to different villages, andperform cultural programs to woothe masses.

• Establishment of Police medicalunits at all the districts: Medicalservice at some of the Maoistinfested areas is very poor. Theinjured and sick policemendeployed in interior areas aredeprived of timely medical help.So, police medical units must beestablished.

MANPOWER PLANNING

Anti-Maoist operation is amanpower intensive operation. Hugemanpowers with different skills isrequired for conducting different tasks.Besides tasks, space and total strengthof Maoists have great bearing on themanpower of police force.

Most of the Police Stations havevery less strength; even the DRP Linesdo not have adequate strength. Thebasic unit to fight anti-Maoist operationis the Police Station. So the strength ofPolice Stations have to be increased tosuch a level that the Police Station candefend itself and can launch small anti-extremist operations. Some of the highlyMaoist infested Police Stations haveonly 1-2-8 police strength. The strengthof these policemen cannot withstand theattack of Maoists. The police outpostsin Maoist infested areas need to beupgraded to Police Stations. At a fewstrategic places, temporary bases forsecurity forces have to be established.The strength of DRP Lines of all theDistricts of the Maoist infested regionhave to be upgraded.

In the recent past, a few cases ofinfiltration of Maoists into police forcehave come to notice. So this importantaspect of manpower planning shouldnot be lost sight of. Proper mixture oflocal people and outsiders and propersecurity vetting has to be done.

Extremist activities are the work ofthe young men. The old and physicallyunfit men of the constabulary are nomatch to the young guerrillas. So, thereshould be some mechanism and policy

to induct young blood in to the policeforce in the Maoist infested areas.

INFRASTRUCTURES

Developing infrastructures of anarea is the high return investment. Athoughtful security infrastructure is thefirst line of defense. The precariousinfrastructural position constrains theoperational environment of the securityforces. The security force withoutproper infrastructure is riskily exposingthemselves to LWE attacks. Itdevastates the morale of the securityforces. The survivability of the securityforce depends to a large extent on thebuilding, fencing and morchas. Thefollowing infrastructures must bedeveloped in the infested regions:

• Police Station building

• Staff Quarters and supervisoryofficer’s Quarters

• Police hospitals

• Police school

• Firing Ranges in all the districts

• Ops. Briefing Room/SandModel Room at the district HQand Range HQ

• New Police Stations

• Barracks for force

• Fencing of Police Stations,O.Ps., DRP. Lines

• Proper Morchas/Trenches.

• Solar lighting of all PSs., and allthe DRP Lines.

• Provision of adequate toilets atthe Police Station level

• Counter-insurgency trainingcentre

• Obstacle Courses• Construction of strategic roads.

Police hospitals, Police schools,Firing Ranges, Operation Briefing Room,Sand Model room, Obstacle coursesmust be developed in all district headquarters. Fencing of Police Station, DRP.

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Lines, concertina fencing for quarterguard and vulnerable Police Stationmust be done. Proper Tower Morchasand underground Morchas, Trenches atthe Police Stations, DRP Lines must bemade to fortify these buildings so thatthese defenses can absorb the hugeattacks of Maoists. Strategic roads withpolice security must be built to facilitatedevelopment and domination of the area.

RESOURCE PLANNING:

Maoists are regularly upgradingtheir arms, ammunition and equipments.So, police must look after its equipment.Resources play a vital role in fightingMaoists. Lack of resources affectscapabilities tremendously. Operationalefficiency depends on logistics andresources.

The resources can be dividedunder the following heads:

• Communication

• Surveillance

• Arms/Ammunition

• Mules/vehicles/ helicopters fortransportation

• Equipment for photography• Computer equipments• Equipment for cultural troupes• Equipment for training purpose• Recreational facilities• Navigational equipments• Resources for medical and

sanitation purpose• Protective equipment• Miscellaneous

COMMUNICATION EQUIPMENT

All the Police Stations must havetelephones and H.F. links. In some ofthe Police Stations which do not havetelephone connection must have longrange cordless phones. The partieswhich go for operations must havesatellite phones.

SURVEILLANCE EQUIPMENT

Police Stations and police partiesmust have binoculars, Night Visiondevices, hand-held thermal imagingsystem and stealth cameras.

ARMS/AMMUNITION

The Police force must havesuperior fire power then the Maoists.They must have A.K.47, M.P.5, INSAS,2" Mortar, 51" Mortars and AGLS. Theold ammunitions must be spent ontraining, and new ammunitions must beused during operations. Sometimes theMaoists use the human shield forattack. This creates a baffling situationfor police, while using maximum force.In these scenarios the police have alsoto use non-lethal weapons. So, the policeparty must have tracers, stun grenades,pepper guns and laser dazzler.

MULES/VEHICLES/HELICOPTERSFOR TRANSPORTATION

Mobilization of the force is themain problem for conducting operations.So, the police force must have means oftransportation from helicopter to mules.The helicopters have extensive use inanti-Maoist operations. It has been usedfor reconnaissance purpose, forcedeployment purpose and as well forcasualty evacuation purpose. It musthave muffled motorcycle, anti-landminevehicles and demining vehicles. Now adays casspir anti-landmine vehicles andhydedrima demining vehicles are veryuseful in mined areas.

COMPUTER EQUIPMENTS

All the SDPOs must be providedwith computers, scanners and laserprinters. All the S.Ps must have scannersand laser printers. All the districts mustbe provided with LCDs and Laptopcomputers.

PHOTOGRAPHY

Digital cameras must be provided

to each Police Station for investigativepurpose, intelligence purpose and alsofor training purpose.

DOG SQUADS

Each police Subdivision musthave dog squads.

EQUIPMENT FOR TRAININGPURPOSE:

Equipment for mechanical firingrange needs to be procured. Low costgadgets used for moving targets will beof much use to inculcate firingcapabilities among the forces. Other lowcost training gadgets must be procured.

RECREATIONAL FACILITIES

Games facilities have to beprovided to each Police Station, so thatthe policemen get recreational facilities.volleyball, basket ball, weight lifting,chess materials, etc., may be providedto each Police Station. Each DRP Linemust be provided with a goodgymnasium. Each Maoist affected PoliceStation must be provided with atelevision.

NAVIGATIONAL EQUIPMENTS

Topographical map sheets anddigitized maps must be procured for theforce. Global Positioning System shouldbe provided to the police force.

RESOURCES FOR MEDICALSANITATION PURPOSE

Medical Mobile Operationtheatres with all the facilities foremergency operation system must beprovided to all the Police Districts, sothat the Mobile Operation Theater canbe put very close to the scene ofencounters to save the lives of peoplegetting injured during encounters. Allthe police stations must be supplied withfirst Aid Kit and tank water purifyingtablets. All the places must haveadequate toilets and running water

35 Jan - Dec 2005

facilities. All the posts must be suppliedwith Syntex tanks and water filters.

PROTECTIVE EQUIPMENT

Bullet proof vests and helmetsmust be provided to the police forceswho actively participate in anti-Maoistoperations.

MISCELLANEOUS

Vulnerable Police Stations DRPlines must have C.C.T.V. system andalarm system. Explosive detectors mustbe procured for demining purpose.

The acquisition of resources,development of manpower, institutionsand infrastructures must follow the rule

of immediacy, or urgency and rule ofcriticality. According to the rule ofimmediacy, the total needs may beclassified as vital, essential anddesirable. Vital needs must be fulfilledimmediately and then the essential anddesirable needs. The rule of criticalitysuggests that critical minimumresources, infrastructures, resources andinstitutions must be decided for anyarea, and the needs must be fulfilledforthwith, otherwise it will jeopardize theinternal security of the country.

The planning to tackle Maoistthreat in most of the provinces of Indiaand most of the infested countries iswoefully bad. The consequences offundamental planning omissions havenow become great obstacles to action.

Habit of undertaking everything withinsufficient means, flawed policies orlack of policies, and the tendency not torecognise ground realities have becomevery fatal for the internal security of thecountry. Now, the Model Action Plan hasdelineated the problem correctly,prioritize the issues appropriately; themodel has captured the essence of anti-Maoist action plan. But, any plan is asbest as its execution. Now, it is the turnof decision makers to apply policyreasoning to remove drawbacks frompolicy domain, make proper institutionalarrangement, mobilize adequateresources, strengthen manpower,conduct vigorous operations, andachieve the strategic objective ofcontaining and eradicating Maoists fromtheir regions.

He who expects men to be alwaysHe who expects men to be alwaysHe who expects men to be alwaysHe who expects men to be alwaysHe who expects men to be alwaysas good as their beliefs,as good as their beliefs,as good as their beliefs,as good as their beliefs,as good as their beliefs,

indulges a groundless hope;indulges a groundless hope;indulges a groundless hope;indulges a groundless hope;indulges a groundless hope;and he who expects men to be alwaysand he who expects men to be alwaysand he who expects men to be alwaysand he who expects men to be alwaysand he who expects men to be always

as bad as their beliefs,as bad as their beliefs,as bad as their beliefs,as bad as their beliefs,as bad as their beliefs,vexes himself with a needless fear.vexes himself with a needless fear.vexes himself with a needless fear.vexes himself with a needless fear.vexes himself with a needless fear.

– J S Kieffer– J S Kieffer– J S Kieffer– J S Kieffer– J S Kieffer

Academy Journal 36

THOUGHTS ON THIS & THAT: 25 YEARS INTHE IPS & BEYONDJayanto N Choudhury

“The time has come,” the Walrus said,“To talk of many things:Of shoes - and ships - and sealing wax -Of cabbages - and kings -And why the sea is boiling hot -And whether pigs have wings.” - Lewis Carroll

A quarter century is ageneration; long enough for an infantto become an adult or the spring ofman’s youth to turn into the autumn ofmiddle age. Officers entering servicetoday were not born when I first walkedthrough the gates of the NPA in 1978with others of the XXXI batch. I havenow crossed that milestone beyondwhich retirement is no longer a distant

mirage and before which senior officerswere demi-gods who could do no wrong.Are there any issues and thoughts thatmy generation has in common with thepresent cohort of the IPS? I am sure thateach generation of police officers facesthe same dilemma as they pass thebaton to the next.

India is experiencing anunprecedented tempo of change thathas placed enormous strains on itsinstitutions of governance. Yet issuesfrom yesterday still confront today andwill need to be addressed tomorrow.Perhaps Generation Next of the IPS willmove closer to solutions that haveeluded their predecessors. In this essay,

37 Jan - Dec 2005

I will not presume to raise themes thathave profound professional significanceor that are backed by in-depth research.Instead, 1 will share my thoughts on afew unconnected themes relating to thisunique service and raise issues for IPSofficers to ponder.

RAISON D’ETRE OF THE IPS

This used to be a popular issuein the 70’s and 80’s, a time that marked achange in the balance of power betweenthe centre and the states. It was thenthat Central Police Forces andOrganizations began to raise their ownleadership cadres and the state policeservices quota for promotion to the IPSwas increased. The pros and cons forthe continuance of the IPS in its presentform are well known. There are many whoeven now question the relevance of thisservice, considering state policeservices as more suitable to lead localpolicing, and permanent officer cadresfor central organizations. Therefore,direct recruitment to the IPS is deemedunnecessary.

What remains distinctive andunquestionable is the unique networkthat the IPS provides, stretching acrossthe nation and knitting together diversepolice and security organizations. The‘steel frame’ may be passe, but virtualnetworks are ‘in’. And that is just whatthe IPS is - a virtual network of just 2000men and women from Kashmir toKanyakumari, from Panjim to Port Blair,linking the leadership of all CPOs, CPFsand the 28 state police departments.

A former army officer serving inthe BSF perceptively remarked that theregimental spirit in the army was nomatch for the bonding within an IPSbatch and in fact across the service.Countries like the USA are activelyseeking formal structures to forgeeffective links between local, state andfederal law-enforcement. Here, theconcept of the all-India servicesprovides this crucial link betweendistrict, state and central police

organizations. Amazingly, it is only theshared experience of the initial one-yeartraining that is the basic glue, bondingbatch-mates over the next threedecades. The reunion seminars andvertical interaction courses reinforcethis bonding and can be developedfurther. What other ways are there tostrengthen this unique networkbequeathed to the nation by those far-sighted founding fathers of ourConstitution?

FOR BETTER OR WORSE

A colleague observed thatallotment of cadre was the single mostimportant factor in an IPS career. WhenI joined service there was restrictedchoice in cadre preferences. Iunderstand that today cadre allotmentis a random process. Is this fair to themore remote states or unfair to those whoare ahead in inter-se seniority? After all,the choice of service itself is a functionof rank achieved in the civil servicesexam. It is a fact that serving in Mumbai,Bangalore or Delhi offers a far betterquality of life and more opportunities forprofessional development than (say)Chandel or Tura. The trend towardcreation of yet smaller states will makethis an even more critical issue in thefuture because states have a commonstructure of police administrationregardless of local needs or the size ofthe department. Hence, DGPs head statepolice forces in states as large as UP orBihar and as small as Sikkim or Mizoramsupported by the same phalanx ofADGPs, IGPs and so on.

Many suggestions have beenmade - from linking smaller states withbigger ones (the AGMUT model) toconverting to a truly All-India serviceabove IGP level. Against the naturaladvantages of local knowledge andfamiliarity with the force, there areillustrious examples like Julius Ribeiroand KPS Gill in Punjab, Chaman Lal inNagaland and several Commissioners ofPolice in Delhi who have had brillianttenures as chiefs of police though

‘outsider’ IPS officers. ‘Outsiders’ mayhave the advantage of not carryingaccumulated baggage whether favourstraded or lobbies aligned with.Nevertheless, there are many otherfactors to be taken account of. Thereality is that major police appointmentsin the states will remain politicaldecisions in the foreseeable future.What is true is that the talent pool willbe greatly enlarged, if candidates fortop police and security jobs anywherein the country are objectively selectedfrom amongst all empanelled officers.What else can be done to further makethe cadre system a strength to policeleadership and effectively harness theskills available in the service?

THE REVOLVING DOOR

Deputation to a CPO or CPF atdifferent levels is part of an IPS career.At the annual All-India DGPsConference the shortfall in thedeputation requirement is invariablyraised. Yet in a number of states, seniorofficers do not get the responsibility andauthority commensurate with theirability and experience, and non-IPSofficers hold cadre posts. Today theCPFs are much larger than the CPOs, yetmost IPS officers prefer a slot in a CPOexcept at the top levels. Perhaps this isbecause of greater job satisfaction in CBIor the IB, despite the relative lack of theperks of a non-uniformed service. A DIGor IG rank officer in the CPOs has morethan just administrative challengesunlike the CPFs that normally operateunder the state government or army.CPOs could also be preferred becauseCPF deployment is primarily in frontieror disturbed areas and the motivationfor central deputation is usually toexperience working in Delhi or avail anopportunity to serve in the home stateof the individual. Many feel that, if thisis not possible, it is preferable tocontinue serving the state particularlythose states, where there is no shortageof creature comforts or facilities forhealth and education. (NE cadres are anobvious exception!)

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Often, an IPS officer joining a CPFat the top rungs without any previousexperience of command in the armedpolice can only function as a bureaucrat.More so, because tenures as CPF chiefsare short. Since the core role of top-levelleadership is to provide strategicdirection and interface with higherlevels of government, technical skillsneeded at lower levels of armed policingare not essential. However, someawareness of the systems and cultureof CPF leadership is useful, since thepresent size and complexity of CPFscannot accommodate dilettantism.

It is sometimes proposed that IPSofficers should man only CPOs for whichthey are better suited and leave the CPFsto be led by their own cadres. Othershold that, above certain levels (say IG);IPS officers on deputation to CPFsshould be permitted to remain onpermanent secondment instead ofcompulsorily rotating to their parentcadres. Yet another suggestion is that,CPF officer cadres at higher ranks shouldbe treated as feeder services to the IPS.What is the option that would bestpreserve the role of the IPS as a commonnetwork for higher leadership of allpolice organizations?

STARS & BARSLike in all other government

organizations, there has been rankinflation in the police hierarchy. Capitalcities in most states have a surfeit ofstar plates and the crossed sword andbaton badges of rank that once denotedthe summit of police leadership.Promotions are no longer dictated by theneeds of an organization, but solely bythe career aspirations and pensionprospects of the individual. In order topreserve or improve upon inter-serviceparity, officers are promoted to higherpay scales after completion of givenyears of service, regardless of whetheradditional appointments at that level arefunctionally required.

There are states where thehierarchy is so top heavy that Additional

DGPs and IGPs outnumber district SPs.An honest survey would reveal thatonly a fraction of these high levelappointments have appropriateresponsibility and workload. In fact,there are many examples of higher ranksat jobs that have been upgraded solelyto accommodate promotions. Instead ofan SP or DIG CID as in the past, theremay be one or more IGPs, in many caseswithout any major increase in workloador real increase in authority. At the sametime, IPS officers skim through the keylevel of SP by 13-16 years service, andthereafter often do not hold executivejobs. This is a waste of resources, sincethe executive leadership level is thecutting-edge, and where the policeparticularly in the states need qualityleaders most.

In the present structure, the mostobvious solution (that has been mootedin the past) is to upgrade the DIGP’s level(super-time scale) to that currently of anIGP. Another option is to have a runningIPS pay scale up to the IGP level withextended increments in the higher levels.DIGPs can be designated on the basisof organizational needs such as span ofcontrol, particularly in the CPFs. Suchchanges would extend the availabilityof RR IPS officers for executive fieldleadership posts unto at least 18 years,the current requirement for promotionto the IGPs scale. However to preservethe quality of intake into the service, thispartial de-linking of pay scale from rankwould need to protect relative status vis-a-vis other services since this is a centralconcern for a candidate choosingbetween government services.

Similarly, the levels above IGP canhave another running scale instead ofthe existing multi-tier levels, few ofwhich denote higher responsibility orauthority. Promotion from the first levelpay scale to the second should mark adistinct change in role and QRs. Therecould be a screening interview (with aboard constituted by the UPSC) toevaluate suitability for the higher levelakin to the Senior Executive Service in

some countries. Naturally the head ofevery organization will continue to beappointed by a system of seniority andselection. Such changes will conform tocontemporary management wisdom thatadvises flattening hierarchies and willdeploy IPS officers more optimallywithout affecting their relative status.Also, imagine the bureaucratic rigmaroleit will do away with!

Problems arise because of theneed for parity with other services,particularly the IAS and the army. Allservices are confronted with similarproblems of top-heavy leadership, yetthe principal concern of each service isto zealously guard its relative positionin the pecking order. And to put theother service in its proper place! The factthat real power is increasingly movingoutside government bureaucracies islost sight of. In its crudest form it is a‘beggar’s banquet’. Each serviceremains locked in mortal combat overcrumbs, a phenomenon that becomesmost evident during deliberations of PayCommissions, and machinations thatfollow recommendations for changes inthe status quo. So the vicious cycle isperpetuated. What is the best way toachieve a balance between organi-zational requirements and individualaspirations?

MIRROR, MIRROR ON THEWALL...

The annual performance review isintended to be an essential tool toevaluate the performance of an officerover time. An effort was made by DoPTin the late 80s to design ACR forms, soas to provide an opportunity for self-appraisal and define specific areas forperformance review at different pay-grades. Such an exercise thoughlaudable needed to be followed-upperiodically to ascertain whether theobjectives of the changes were achievedor whether further fine-tuning is needed.

In many states, the ACR isirrelevant to either promotion or

39 Jan - Dec 2005

postings. Promotions follow theescalator principle (once on, you arecarried to the top) and selection forpostings are a function not of what youdo, but whom you know. In GOI, ACRsbecome important for empanelment tosenior posts. Recently, there has been arevival of discussion on the need toadopt a carrot-and-stick approach toperformance, so as to shake the officialstructure out of a perceived lethargy.

In real terms, what does this meanfor the IPS? Already, the criterion forempanelment is that an officer has anoverwhelming preponderance of‘Outstanding’ grading. The real issue ishow valid the present system is toassess performance or potential?Remember, in the existing ACR systemthere is no effective basis for relativecomparison, both across organizationsand over time. Nor is there any across-the-board understanding of what isbeing assessed. In a recent case thePrincipal Home Secretary of a particularstate who has been designated theReporting Officer for ADGPs asked theDGP (who was not in the chain ofassessing officers) for his comments onthe ‘turn-out’ of ADGP level officers!

Most Reporting, Reviewing andAccepting authorities understand theinadequacies of this assessment system.They give the ‘Outstanding’ grade freely- unless they plan to ‘fix’ the individualin which case they write ‘Very Good’ or‘Good’ which is the kiss of death! Evenstates that were conservative earlier ingiving ACR gradings, have realized thatthis only serves to bar cadre officersfrom holding top central posts and nowfollow the rules of the ACR game.

Little attention is paid to the self-appraisal portion filled by the officerreported upon. Likewise, the 6-7 pagesassessing the officer’s quality of workand attributes entered by the reportingofficer is usually a routine exercise inplatitudes. In practice, the bottom-lineis the column ‘Grading’ which mars ormakes the individual’s promotion

prospects (at least in the centre). Thereviewing officer usually looks at justthis bottom-line, more often than notendorsing the assessment of thereporting authority. The acceptingauthority seldom has direct knowledgeof the work of the officer reported on.Changes, if at all at this level, are(perhaps) because of a view that thereare too many gradings in a particularcategory or something similar, unrelatedto the performance of the individualreported upon.

Is there a solution? The numericalassessment used in the defence servicesis even more controversial and even ameaningless difference of 0.1 hasblighted promising careers. The recentexperience of top levels in the defenceservices approaching the highest courtfor justice in the matter of promotionsspeaks for itself. The corporate world isexperimenting with 360-degree assess-ments and concepts like assessmentcentres. Of course, for the private sec-tor, the value addition by an individualis a simpler measurement - has he/sheincreased profits for the organization?How can value addition in a service func-tion like police leadership be effectivelyevaluated?

Some system of appraisal is nec-essary and useful, if it is also used togive individual feedback and act as anorganizational barometer. What is cer-tain is that the present system of ACRsis not achieving this. It needs review,and not just to give greater weight to anindividual’s self-appraisal or clarify ex-pectations at different levels. How canACR’s become more meaningful as adatabank of organizational skills, a mea-sure of individual achievement and alsoof comparison (however odious!) withinand across organizations?

THE IRON TRIANGLE

There is often talk of the unholypolitician-official-criminal nexus andhow it is preventing the country’sprogress. Just as there are good and badpoliticians, there are good and bad

officers. Today, in addition to politiciansand officials the media, judiciary,corporate sector, academia and NGOshave a growing influence on governance.There is nothing to stop a coalition of‘good’ politicians and officers aligningwith positive elements in theseconstituencies to form an ‘iron triangle’in support of good governance.

This will need a shift in the mentalmodels of how we perceive bothpoliticians and these otherconstituencies. From district levelupwards, it will need recognition ofpower groups who actually determinethe direction and substance ofgovernance. The colonial partnership ofthe DC and SP is inadequate to meetchallenges of the more complex systemsof governance today. The hangover ofkeeping the ‘neta’ at arms length isantediluvian. In any case, thecontemporary generation of politicalleaders is often as qualified and withsocial skills at par with any governmentofficer. Similarly, the view of governanceas the ‘white man’s burden’ of thegovernment machine alone is outmoded.- there are numerous examples of sectorslike the corporate or academic world andNGOs contributing with ideas, resourcesand action to improving the quality oflife for the BOP (Bottom of the Pyramid)millions. Judicial activism by just a fewenlightened judges has sometimesachieved what the behemoth ofbureaucracy could not.

There is always a risk - the risk ofofficers being manipulated andcorrupted by these interest groups thatoften have their own agenda. But thisview assumes that only governmentofficials are the keepers of national andthe people’s interests, something thatwe know to be untrue. If IPS officersaccept the reality of governance as it is,perhaps it will be easier to learn to map astrategy that leverages the strength ofthese diverse coalitions. This is likelyto yield greater dividends thanbemoaning political pressures orlooking at NGOs with jaundiced eyes.

Academy Journal 40

There is a need for IPS officers to reachbeyond officialdom and build coalitionswith positive elements in other powergroups. Effective officers instinctivelydo this. This is also crucial, if policereform is to move beyond PoliceCommission reports gathering dust. Howdo you orient IPS officers to work withthese diverse power centres in achievingthe goals of effective policing andgovernance, yet avoid becoming merepuppets or part of the politician-official-criminal nexus?

WORK-LIFE BALANCE

A distinguished police officer ofyesteryears had said, “You can eitherbe a good police officer or a goodhusband, not both.” Police work at thefield level is highly stressful. It involveslong hours, moments of intense strainand remaining on call when the rest ofthe world is asleep or having a goodtime. It requires an understanding thecriminal mind, the potential for groupviolence and not shirking from firmmeasures when called for. All IPSofficers go through these phases. Yet,some manage to become patrons ofsport, culture or social work, even if onlyencouraging these activities as a meansto unit cohesion or better public image.As an aside, the strength of all centraland state police forces is over 2 million.If a concerted effort is made to spottalent, and even 0.1 % of resourcesdedicated to promoting excellence inselected disciplines, what can stop thepolice producing several Maj. Rathore’sat future Olympics? Just think whatwonders this would do both for thepolice-public image and self-esteem!

At an individual level, soundphysical health and work-life balancewould immeasurably add to the qualityof police leadership. The caricature of apoliceman is of an overweightignoramus who remains at the thana24 x 7 because he has no other life. Athigher levels, the work ethic encouragesextended hours in the office, againresulting in mental fatigue and a host of

physical ailments. A dedicated workethic is crucial, but neglecting self andthe family has not been shown to boostperformance. In fact, research todaydiscounts the Type-A workaholic andviews balanced personalities as beingbetter decision makers and leaders. Howthen to promote the balanced scorecardlifestyle?

LIFELONG LEARNING

A renowned IPS officer (himself alearned man) once asserted, “Policemenonly read on horseback.” This reflectedthe prevailing disdain for intellectualdevelopment and a belief that ‘macho’field policing was the beginning and endof an IPS career. This is a pity becausethe essential difference that sets aparthigher leadership is intellectual skills.The qualifications of entrants to the IPSare impressive. A wide spectrum ofacademic disciplines is represented inevery batch. At the same time trainingfacilities available are state-of-art. TheNPA is world-class. On the other hand,contributions made by IPS officers orpolice academies to the conceptualdevelopment of policing or professionalinnovations in the field are too few.

Again, except (to an extent) for thebasic professional course how manytraining courses at higher levels addvalue to police leadership skills? Fieldslike technology and management aredeveloping at an exponential rate.Unfortunately, there is no mechanism toincorporate these changes in real-timeto police training. We continue toprepare for the ‘last war’. Individualshave acquired contemporary skills,cutting-edge knowledge or developedstrategic abilities by their own effortsand have applied these to betterleadership. There are many Kiran Bedi’swho have introduced path-breakinginnovations. Yet rarely have thesebecome part of the institutional skills ofthe service. For many others,Napoleon’s description of one of hisgenerals is more accurate - “One year’sexperience repeated 30 times”.

How to extend the learning curvein a police career and make the leadershipcatalysts for innovation and intellectualgrowth of the profession? Is it time forpolice training institutions to embrace achanged role? This could be by (a) Alsobecoming centres for applied researchin policing with a closer interface withexperts and scholars from otherdisciplines (b) Inviting a rigorousacademic audit by objective academicauthorities or by seeking accreditationto a renowned institution of higherlearning like MDI or an IIM (c)Instituting a one-year course for IPSofficers with 17-20 years service like theNational Defence College or PoliceHigher Command Course in the UK. Thiscould take a cross-disciplinary approachand be designed in consultation withrenowned academic/training institutionsfrom other fields. The curriculum shouldbe sufficiently rigorous, focussing onstrategic skills, a systems perspectiveon national security and governanceissues, and familiarity with advancedconcepts in leadership and management.Self- development can also be facilitated.

As part of course requirements,officers should write an individualdissertation on a subject related to theirpolicing experience and a group paperon themes relating to governanceparticularly policing, organizationalanalyses or national security issues.Officers should be required to presenttheir theses both for peer review and toa group of experts. This course shouldinclude field visits to selected places inIndia and abroad, both neighbours anddeveloped countries. An element of pre-selection and on-course evaluationwould make such a course moreprestigious.

It may not be feasible to have suchtraining, so that each IPS batch istogether, but 3-4 years batches can begrouped to reinforce service bonding.Of course, this will be expensive, as isthe NDC or a similar course run by theIIPA. Would the investment beworthwhile? After all, police and security

41 Jan - Dec 2005

organizations in India account formanpower of over 2 million and anestimated annual expenditure of Rs50,000 crores. It remains true that ‘if youspend only peanuts, all you’ll get aremonkeys’!

OFFICERS AND GENTLEMEN

At one time the higher policeleadership had the public reputation andself-image of having elevated ethicalstandards. IPS officers were consideredabove factors like community andreligion in providing impartial leadershipduring crises like communal riots. Thereare many instances of police leadersstanding firm against improper ordersfrom higher authority even at the costof career prospects. An IPS officer wasbelieved to have higher professionalability and standards of integrity andwas sought for in difficult situations.The identity of the service was Integrity,Professionalism, and Service. This wasthe USP for giving young officers theresponsibility of supervising veteranswho were far more experienced in fieldslike crime investigation, police adminis-tration or managing law-and-order.

There is a general impression thatthere has been a significant dilution inprofessional standards and ethicalvalues, as with all other institutions ofgovernance. The CVC website andpublic reports of ethical misconductconfirm that there has been atransformation in acceptable principlesof probity. There are examples of policeleaders at the highest level abjectlysuccumbing to pressures, not justcompromising with professionalintegrity but also betraying the trust ofcommunities it was their dharma toprotect.

Some regard this as inevitablebecause of the changed composition ofthe service and the general shift in social

mores. The all-India services remain aremarkable triumph of socialengineering. These services haveprovided avenues for advancementundreamt of before Independence forintelligent youth from socially andeconomically deprived sections. At thesame time, state police services todayhave far better career prospects becauseof a higher intake into the IPS. There is aview that this has been a prime causefor the change in the standards andculture of these services. This is just nottrue. Diversity is a strength notweakness, particularly since the policeserve a diverse and dynamic society thatis itself undergoing a socialtransformation. Other fields like micro-credit in the banking sector re-affirm thathonesty and positive values are notconfined to the upper social or economicclasses.

Nonetheless, the continuance ofthe influential role of the IPS will dependgreatly on whether the service canmaintain higher professional standardsand a corporate culture that demandsan exacting ethical code from itsmembers. Only then can the IPS retainits status as the undisputed elite of policeleadership. What is the socializationprocess that can retain this distinctiveidentity of the service, enforced not byConduct Rules or the PC Act, but bypeer pressure and an esprit d’corps?

RETHINKING THE FUTURE

There has been a revolutionarytransformation in the country’s socio-economic environment in the fivedecades since independence. Naturally,there have been enormous stresses onits institutions. In this period of flux, theIPS has provided distinguished serviceat the helm of India’s police and internalsecurity apparatus. There have beenmany IPS officers who have earned aplace in the ranks of ‘Great Captains’. A

few form a rogue’s gallery without aniota of leadership qualities. Instead, theyhave exhibited unacceptable levels ofself-indulgence, avarice and un-scrupulous ambition. Nevertheless, IPSofficers as a group have acquittedthemselves honorably and withcompetence.

Contemporary and futurechallenges demand hard introspectionon the strengths and weaknesses of theservice, and courage to face the needfor change. Nothing lasts forever, leastof all institutions, in a time of rapidchange. However, I believe that the IPSstill has some mileage left in providingquality leadership to India’s state andcentral police and securityorganizations. All IPS officers; my batchnow in the final decade of service andthose before and after us have an equalresponsibility to develop a shared visionand navigate the service toward thedesired direction. As I was told by a verysenior officer when I first entered service“Son, the only difference between us isour dates of birth” - implying that wewere all professional peers in the IPS.So let us dare to ‘dream the impossibledream’ and let the IPS be thetorchbearers in the quest for the‘unreachable star’ of police reform.

REFERENCES1. Who Are We? Samuel P.Huntington

2. The Fortune at the Bottom of thePyramid. CK Prahalad

3. Transformation in Governancesince 1990’s. Vinod Vyasulu, EPWJune 5-11.2004.

4. The merit of a civil servant. BhaskarGhose, Frontline November 4, 2004

5. The Fifth Discipline: The Art andPractice of the Learning Organization,Peter M. Senge

6. Senior Executive Core CompetencyStandards. National Police EducationStandards Council, Australia.

7. Rethinking the Future. Ed. By RowanGibson

Academy Journal 42

MARKET APPROACH TO POLICING –SOME INTERNATIONAL TRENDSProf K. Ramachandran (Indian School of Business, Hyderabad)

INTRODUCTION

Globalisation, privatization andcore competence, terms often used inbusiness management parlours havefound their way to discussion on moreefficient and effective policing.Experiments have been going on inadvanced countries particularly Britain,US and Australia on new strategies inpolicing. An effort is made here tocapture some of the salient features andlogic behind such initiatives.

NEW PUBLIC MANAGEMENT

Globalisation, defined as thequantitative and qualitative increase inthe scope and intensity of the process

of internationalization (Cope, Leishmanand Starie, 1997), is on the rise. Events,decisions and activities in one part ofthe world are impacting individuals andcommunities in distant parts of theglobal system (Held and McGrew, 1993).In this era of escalating globalization,states are increasingly in competitionwith each other (Palan, 1993), changingtheir role from “welfare states” to“competition states” (Cerny, 1993). Thisshift has led to a strategic reorientationand structural reorganization of states(Jessop, 1994) through a process ofshedding peripheral functions in favorof focusing on the core functions of thestate that enhance its competitiveposition. The core functions of the stateare themselves being restructured

43 Jan - Dec 2005

through a process of shedding activitiesthat are peripheral.

The most prominent form ofrestructuring of states and its corefunctions as a result of globalization,particularly in the west, is through NewPubic Management (NPM) thatemphasizes the injection of market forcesinto government. NPM rests on the twindoctrines of removing differencesbetween public and private sectors andon shifting focus of public organizationsaway from complying with proceduresand rules towards getting results (Hood,1994). It asserts the superiority of themarket over the state and ischaracterized by the traits mentionedbelow (Cope, Leishman and Starie, 1997).

a) Competition: NPM reflects theview that greater competitionbetween the public and privatesectors in the public sectorpromotes efficiency and customerresponsiveness.

b) Centralization: NPM centralizesthe making of policy in the handsof the core government. Itseparates “steering from roving”,leaving the government to steerwhile other agencies row(Osborneand Gaebler, 1992).

c) Decentralization: NPM decentra-lizes delivery of pubic policy to aplethora of agencies that exercisemanagerial and operationaldiscretion within the limits of policystrategy set by the government.

d) Fragmentation: NPM fragmentsgovernment because of thesteering/rowing split thatencourages further client/contractor and purchaser/providersplits within government.

NPM AND POLICING

Some policy areas such aseducation and healthcare have beenmore exposed to NPM. However, the

application of this doctrine to policinghas proved to be an enormous challengefor governments embracing its tenets.There are three important aspects thatset the police apart from othergovernment departments and agencies,and create this challenge. They are:

a) Statutory Authority Status: As astatutory authority, law providesthe independence of police andits policy-making powers.Governments tend to adopt anarms-length policy and allow thepolice to act with greater degreeof independence than they dowith many other governmentagencies (Manison, 1995).

b) Discretion: The police enjoyenormous discretion inperforming their duties and it setsthe police apart from most othergovernment departments andagencies (Manison, 1995). Policeoperate within an environmentthat at times requires them to actand make decisions on the run.All laws, rules, regulations andinstructions cannot cover everycontingency. Police discretion hasevolved to cope with the varietyof situations they face (Manison,1995).

c) Power of Negotiation WithRespect to Police Policy: Thepolice play a key role in policymaking because governmentsneed their cooperation andconsent for any policies to beimplemented. As a result,governments have traditionallyconsulted and negotiated withthe police staff associations whilemaking policing policy (Cope,Leishman and Starie, 1997).

NPM commits the government tofiscal restraint, efficiency performanceand cutting back of the public sector(Miller and Rose, 1990) and emphasizescost control, financial transparency theautonomy of organization sub-units, thedecentralization of management

authority, creation of market and quasi-market mechanisms separatingpurchasing and providing functions andtheir linkage via contracts, and theenhancement of accountability tocustomers for the quality of servicethrough creation of performanceindicators (Power, 1997).

Applied to the context of policing,the police organization must embracethe tenets of NPM that commits it tofiscal restraint, the decentralization ofauthority and the creation of marketmechanisms. But paramount is itsaccountability for performance to itscustomers. In this background, thepolice officer can no longer be seen as aself-directed decision maker answerableonly to the law. Rather, he is a personsubject to organizational andoccupational/professional rules andnorms (Lustgarten, 1986) andperformance requirements like otheremployees.

EVALUATING APPLICATION OFNPM WITH REGARD TOPOLICING

Traditionally, the principalconcerns of politicians and thecommunity in a democracy has beenabuse of the enormous powers vestedin the police and their protection frompolitical interference, so that they arenot seen as partisan servants of thegovernment of the day (Manison, 1995).With NPM, new concerns regarding theeconomic use of resources by police andthe outcomes of their activities andpolicies get added (Manison 1995). Inaddressing these concerns, NPMembraces a theory that publicinstitutions have failed the test ofeffectiveness and efficiency, and tocorrect this deficiency they need toadopt the managerial techniques andadministrative structures of private, for-profit corporations (Chan, 1999) throughthe processes centralization,decentralization, fragmentation andcompetition mentioned earlier.

Academy Journal 44

To summarize, the effectiveness ofapplying NPM to policing will have tobe evaluated, as to how well it addressesthe following concerns:

a) Abuse of powers vested in thepolice

b) Their protection from politicalinterference

c) Improving their effectiveness andefficiency

d) Accountability for performanceagainst expectations with regardto their services

INTRODUCING NPM: THEBRITISH EXPERIENCE

The oft-quoted experience inintroducing NPM in policing is theattempt of the Conservative Governmentin UK in the early 1990’s. In thebackground of seemingly inexorable risein recorded crime that raised manyquestions about police performance, thegovernment launched a raft of reformsdrawing on a series of studies like theSheeny Inquiry, the Posen Inquiry andthe White Paper on Police Reform (Cope,Leishman and Starie, 1997). The reformsrecommended were wide-rangingcovering every aspect of policing andranged from a detailed look at theircompensation, introduction ofperformance related pay and fixed termappointments to the devolution ofdecision making to local policecommanders who would have autonomyin setting local priorities and deployingresources. Unlike earlier reforms thatwere negotiated with police staffassociations before introduction, thesereforms were pushed through. Policereaction and parliamentary resistance tothese reforms was swift and well-organized leading to many measuresbeing dropped or diluted (Leishman,Cope and Starie, 1995), especially thosepertaining to compensation and jobstructures.

However, other restructuringefforts in line with the tenets of NPMwere successfully implemented. The

restructuring has involved bothcentralization and decentralization. Thepolice exercise greater managerial andoperational autonomy within anincreasingly centralized policy andfinancial strategy. Following the resultof various inquiries, chief constableshave greater freedom to mange theirpolice forces but local policing planshave to be consistent with policingobjectives set nationally. Responsibilityfor making operational decisions hasdevolved downwards, but these mustbe consistent with the strategydetermined locally that in turn must beconsistent with national-level strategy.As a result of this simultaneous processof centralization and decentralization,“steering” the police is increasinglycentralized and “rowing” decentralized(Cope, Leishman and Starie, 1997).

Privatization has taken thefollowing significant forms (Cope,Leishman and Starie, 1997):

a) Load Shedding: It involves thetransfer of responsibility for serviceprovision from the police to theprivate or voluntary sector. Privatepolicing has expandedsignificantly with the privatesecurity industry employing morestaff than the police.

b) Compulsory CompetitiveTendering: This involves pubicsector workers competing withprivate contractors to carry outwork previously done in the publicsector.

c) Charging for Services: The scopeof services provided by the policethat would be charged has beenincreased with a conscious effortbeing made to exploit thecommercial potential of theirservices.

Researchers have found thatpolicing is increasingly couched inbusiness rather than service terms. Thelanguage of community policing haspicked up private-sector jargon such as

“client group consultants”, “customerservice” and “partnership” whileemphasizing decentralization andresponsiveness to local demands (Chan,1997; O’Malley and Palmer, 1996). In thisbackground, policies such as fee forservice, contracting out of non-coretasks, performance contracts, and fixed-term contracts become more natural andless controversial (Leishman, Lovedayand Savage, 1996; Davids and Hancock,1998).

EVALUATING EXPERIENCE SOFAR

The British model of policereforms has been adopted by Australiawith individual Australian territoriesintroducing reforms and legislation,based on this model. As laid out earlier,we evaluate the experience of applyingthe principles of NPM to policing withregard to how well the concerns ofabuse of power, protection from politicalinterference, improving efficiency andeffectiveness and accountability forperformance against expectations, areaddressed.

Abuse of Power: Despite theemphasis placed by NPM onperformance, government’s evaluationof the success of their reform process isdominated by how well the traditionalconcern of abuse of power is addressed.Governments have always attachedconsiderable importance to establishingsystems of accountability, so thatcitizens can be reassured that despitethe extraordinary powers conferred onthem, police are not out of control northeir actions free from appropriatescrutiny (Chan, 1999).

The traditional legal anddisciplinary procedures to control policemisconduct had failed primarily becauseof an occupational culture that excusesand encourages abuse of power(Bayley, 1995). The advent of NPM hasbrought with it a new principle of policeaccountability that involved a shift inregulatory style away from centralized

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control towards a combination of self-regulation and external oversight (Chan,1999). This reflects a commitment topush controls further into organizationstructures, inscribing it with systemsthat can be audited (Power, 1997).

Police organizations are beingscrutinized internally, through settingup of special units within the force toinvestigate complaints of abuse ofpower, and scrutinized externallythrough the setting up of watchdogagencies. For example, the Australianpolice have set up the Office ofProfessional Responsibility andProfessional Integrity Branch forinternal scrutiny, while the Office of theOmbudsman and the IndependentCommission Against Corruption act aswatchdog agencies. Individual officershave to keep records of their activities,they are monitored continuously bytracking systems built into informationtechnology and audited regularly withrespect to major investigations, criticalincidents, operational readiness andrecord-keeping standards (Ericson andHaggerty 1997).

Power (1997) identifies twounintended consequences of thesemeasures:

a) Decoupling: This involves settingup special units to deal withaccountability requirements whilethe rest of the organization carrieson with business as usual.Accountability, then, becomes anissue of image management.

b) Colonization: The accountabilityprocess dominates organizationsand individuals to the detrimentof their own performance.

Ericson and Haggerty (1997) havedocumented how the “paper burden”has become the source of alienation forpolice officers, who see this type ofaccountability requirement as a majorsource of distraction from the “real”police work of fighting crime.

External investigations have notled to significant increasesubstantiation rates of complaintsagainst police (Goldsmith, 1995), and areinvariably and instantly resented bypolice creating a conspiracy of silence(Power, 1997). The attempt to overcomepolice resistance to externalinvestigation by combining internalinvestigation with external oversight toohas not been very successful withcultural resistance to both internalinvestigation and external oversightproving to be a major stumbling block.The new accountability’s project ofmanaging the risk of official misconductis continually frustrated by evidence ofits failure and the consequent swingback to punitive control strategies(Power, 1997). In the area of policegovernance the state is ambivalentabout the slogan “let the managersmanage”, given the inability of itsaccountability technologies to controlabuses (Chan, 1999).

Political Interference: In a democracy,it is important that police perform as anindependent agency accountable to thelaw and community. Their statutorystatus is one way of facilitating thisoutcome (Manison, 1995).

Although police enjoy greaterindependence than other publicagencies, their independence has nowbeen balanced by increasedaccountability mechanisms, particularlyinstitutional one’s, given the right ofgovernment and quasi-governmentagencies to inquire into police activities.Despite the police being moreaccountable than they have ever been,their independence has been maintainedby taking an arms-length approach totheir management (Manison, 1995).

The increased emphasis placedon accountability to the community toohas enabled the police to maintain theirposition away from direct politicalcontrol, while keeping in touch withcontemporary needs and standards(Manison, 1995).

Efficiency and Effectiveness: Theapplication of managerial techniquesand administrative structures of private,for-profit organizations to improve theefficiency and effectiveness of policeservices seem to have encountered theleast resistance. Measures, like thedevolution of decision-making powersto lower levels in the organization, load-shedding through transfer ofresponsibility for service provision fromthe police to the private or voluntarysector as evident in the significantexpansion of the private securityindustry, have been relatively easier toimplement.

Accountability for Performance: Thefundamental tenet of NPM is that publicservice providers are accountable forperformance to their customers. Toestablish accountability, authoritieshave embraced the concept ofestablishing Key PerformanceIndicators (KPI) to measureperformance. In discussing the Britishexperience in this regard, Nash (1998)indicates that while KPI have beenestablished to measure policeperformance and measurable targets set,these have failed to match what policeorganizations did in their everydaywork.

NPM AND ACTUALPERFORMANCE

The application of NPM topolicing has not necessarily resulted inimprovement in performance. Theprincipal object of policing is theprotection of the public throughprevention of crime rather than itsdetection and punishment after the crimeis committed. However, detection haseclipsed prevention (Crawford, 1994)and it is estimated that only 1% ofofficers were appointed specifically toundertake crime prevention workcompared to 40% in detection (Nash,1998). It is, therefore, not very surprisingthat recorded crime has been on theincrease and the police are viewed as

Academy Journal 46

not being particularly successful incontrolling crime.

This failure has been analyzed andattributed to the over-reliance on a singlestrategy (Reppetto, 1972) and the failureto develop adequate local managementof the use of police resources (Ackroyd,1993). While Reppetto (1972) suggestsa broader strategic approach as asolution, Ackroyd (1993) calls for aconvergence of an adequate policy-directed and locally sensitive approachto management of policing based on anintegrated use of technology to reversethis trend.

The police have traditionallyfollowed a strategy of Deter (preventcrimes from occurring), Detect(detecting crimes when they occur) andApprehend (apprehending crimeperpetrators) or a DDA strategy tocontrol crime. This is achieved by thefollowing techniques that are aimed atrepressing desire by foreclosingopportunity (Reppetto, 1972).

a) Omnipresence: Projecting thehigh probability of policepresence at any given point intime and space in order toheighten the offendersperception of risk

b) Aggressive Patrol: Locating andchallenging suspicious persons

c) Rapid Response: To emergencycalls, so that criminals may beapprehended in the act

This strategy has tremendouslimitations as crime targets are numerousand significant criminal activity isinvisible. Reppetto (1972) quotes astudy, which states that in the city ofLos Angeles, a patrolling policeman’schances of encountering a robbery inprogress are once in 14 years. This callsfor adopting a broader strategicapproach to crime prevention (Reppetto,1972) that includes both opportunity-minimizing strategies and desire-

lessening strategies that targetscriminals rather than crimes. Underlyingthis approach is the view that it isappropriate to work with the source ofthe crime rather than its multitudinouseffects. These include tactics such ascrime pattern analysis, so that high-risktargets can be identified and protectedand supporting the work of multifacetedagencies operating in neighborhoodswhere repeat offenders areconcentrated.

The solutions suggested attemptto re-establish and strengthencommunity links and call for a return tocommunity-based policing involvinggreater public and police interaction andcooperation and the need for multi-agency partnerships to control andprevent crime thereby improvingperformance.

ACHIEVING ACCOUNTABILITY-IMPROVING PERFORMANCE

Accountability in publicorganizations will not be achieved byreporting simple performance measures.The main requirement is that those inpublic service organizations should feelresponsible and accountable to thepublic for whom they work (Joubert,1988). The challenge to achieving suchaccountability is to gain the support ofthe rank-and-file organization for reforms(Reiner 1995). Such accountability mustgo beyond the requirement of probityand propriety in public servants andencouraging initiative, innovation andexperiment (Joubert, 1988) so that actualperformance is improved. We presentbelow a case study of the New YorkPolice Department (NYPD) whereinaccountability was achieved byobtaining the support of the rank-and-file organization. A return to theprinciples of community-based policingand the encouragement given toinnovation and experiment led toimproved performance throughenhanced service delivery. We draw onthe paper by Drummond, Ensor, Laing

and Richardson (2000) in developingthis case study.

THE NYPD EXPERIENCE

NYPD is the largest municipalpolice department in the USA. Thedepartment employs 40,000 uniformedofficers to police a daily transientpopulation of approximately of 11 million.New York’s crime record was one of theworst in America and NYPD’s mostchallenging period began in 1993 whencrime figures were at record levels callingfor urgent action. To make mattersworse, the police force exhibited poormorale. By pioneering community-basedpolicing initiatives and obtaining thesupport of the rank-and-fileorganization, NYPD succeeded inreducing overall crime by 44% andmurder by 69% by 1997.

The first and the most crucial stepin this process was the development ofa clear understanding of the “customer”.NYPD understood that its customer wasan “unwilling/reluctant” one whoapproached it only from legal necessityor at a time of crisis or conflict. It wasnecessary to establish exceptionalservice delivery standards in catering tothese types of customers so that theirunwillingness/reluctance is overcome.NYPD implemented a service deliveryprogram called CPR standing forcourtesy, professionalism and respect.CPR is compliance tested with officersposing as members of the public andduty officers were rewarded or rebukeddepending on the level of compliance.

Staff commitment is a precursor tocustomer service and the exercise ofunderstanding the customer helpedestablish the concept of the internalcustomer, the staff of the organization.Internal customer interfaces wereimproved to listen to the staff andactively respond to their needs therebyenhancing internal service delivery.Such improvement tended to be basedon the experience/knowledge of the staff

47 Jan - Dec 2005

and they were actively involved inprocess redesign (for example, itreorganized aspects of training andequipment specifications in response toofficers’ demands). Typically, changeswere pilot tested before being appliedto the wider organization and involvedsignificant degrees of employee training.This led to the development ofstreamlined internal processes andimproved staff morale. The improvedinternal customer interface, streamlinedprocesses and higher staff moraleestablished a behavioral shift allowingconcepts and principles of service andcustomer care to be more readilytransferred to external customersleading to improved external customerservice.

Feedback played a crucial role indetermining customer service policy andonce again staff were involved indesigning service systems/processesand improvements targeted at specificcustomer groups. NYPD broughtcustomer representatives intocommand centers to explain majorinitiatives and public reactions toinitiatives and campaigns were alsomonitored.

Communication is crucial tosecuring staff support and effectiveservice delivery to external customers.The top management of NYPD playedan active role in ensuring effectivecommunication. Streamlined informationflows created a high degree of awarenessamong staff and provided feedback totop management. NYPD emphasizedlateral flows of information that enabledcooperation among different units andimproved service delivery.

It established a sense of staff pridethrough:

• Praise and recognition asappropriate

• Staff feeling that seniormanagers are accountable

• Empowerment of staff

• Improved/good workingenvironment

• Organization recognition -being part of an organizationthat s highly respected

Strong control mechanismsensured continued customer focus andclarity of purpose. While controlsystems are formalized, they are notblunt measures and flexibility, problemsolving and learning are the themesbehind these measures. It is a robust butfair system wherein everybody knowswhat he or she is being measured onand how he or she is being gauged.

From the above, it is evident thatby garnering the support of its staff,NYPD ensured that they felt responsibleand accountable to the public for whomthey work. It also ensured that actualperformance improved by encouraginginitiative, innovation and experiment, sothat service delivery matched theexpectations of its customers.Mechanisms for obtaining feedbackenhanced service design to differentgroups and effective communicationimproved service delivery throughcooperative effort among different units.Strong control systems were establishedto ensure continued customer focus andclarity of purpose.

CONCLUSION

Modernising the police forceshould essentially focus on the people,both those in service and in the society.This seems to be the message. Giventhat police operates within theconstraints of a number of forces fromwithin and outside, a micro level changemanagement approach with objectivesof building human relationships betweenthe police and the community may bethe answer. Evidences available frommany places in India such as Cyberabadsuggest that a willing leadership canbring about lasting changes.

REFERENCES1. Ackroyd, S. (1993). A Case of

Arrested Development? SomeConsequences of InadequateManagement in the British Police.The International Journal of PublicSector Management. 6(2), 5-16.

2. Bayley, D. (1995). GettingSerious about Police Brutality. InStenning, P. (ed.), Accountabilityfor Criminal Justice: Selected Essays.Toronto, Canada: University ofToronto Press.

3. Cerny, P. G. (1993). Plurilateralism:structural differentiation andfunctional conflict in the post - ColdWar world order. Millennium. 22(1).

4. Chan, J. (1997). Changing PoliceCulture: Policing in a MulticulturalSociety. Melbourne, Australia:Cambridge University Press.

5. Chan, J. (1999). Governing policepractice: limits of the newaccountability. British Journal ofSociology. 50(2). 251-270.

6. Cope, S., Leishman, F., and Starie,P. (1997). Globalization, new publicmanagement and the enabling state- Futures of police management.The International Journal of PublicSector Management, 10(6), 444-460.

7. Crawford, A. (1994). Police andprobation attitudes. Policing, 10(1),58-68.

8. Davids, C, and Hancock, L. (1998).Policing, Accountability, andCitizenship in the Market State.Australia and New Zealand Journalof Criminology, 31(1). 38-68.

9. Drummond, G., Esnor, J., Laing, A.,and Richardson, N. (2000). Marketorientation applied to policeservice strategies. TheInternational Journal of PublicSector Management, 13(7), 571-587.

10. Ericson, R., and Haggerty, K.(1997). Policing the Risk Society.Toronto, Canada: University ofToronto Press.

11. Goldsmith, A. (1995). Necessarybut not Sufficient: The Role ofPublic Complaints Procedures inPolice Accountability. In Stenning,P. (ed.), Accountability for CriminalJustice: Selected Essays. Toronto,Canada: University of TorontoPress.

Academy Journal 48

12. Held, D., and McGrew, A. (1993).Globalization and the LiberalDemocratic State. Government andOpposition, 28(2). 264-276.

13. Hood, C. (1994). ExplainingEconomic Policy reversals.Buckingham, UK: Open UniversityPress.

14. Jessop, B. (1994). Changing formsand functions of the state in an eraof globalization and regionalization.In Delorme, R, and Dopfer, K. (Eds),The Political Economy of Diversity.Aldershot. UK: Edward Elgar.

15. Joubert, C. (1988). Strategy inthe Public Sector. Public Money& Management (Autumn), 17-19.

16. Leishman, F., Cope, S., and Starie,P. (1995). Reforming the police inBritain: new public management,policy networks and a tough “oldbill”. The International Journal ofPublic Sector Management, 8(4).

17. Leishman, F., Loveday, B., andSavage, S.P. (1996). Core Issues inPolicing. London, UK: Longman

18. Lusgarten, L. (1986). TheGovernance of Police. London, UK:Sweet & Maxwell.

19. Manison, G., F. (1995). ManagingAustralia’s Police: The Challenge toIdentify Who Should Be In-Charge- Politicians or Police? AustralianJournal of Public Administration,54(4), 494-507.

20. Miller, P., and Rose, N. (1990).Governing Economic Life.Economy and Society, 19(1). 1-32.

21. Nash, M. (1998). Managing risk -achieving protection? The policeand probation agendas. TheInternational Journal of PublicSector Management, 11 (4), 252-261.

22. O’Malley, P., and Palmer, D.{1996}. Post-Keynesian Policing.Economy and Society, 25(2), 137-155.

23. Osborne, D., and Gaebler, T.(1992). Reinventing Government.Reading, Massachusetts: Addison-Wesley.

24. Palan, R. (1993). UnderConsumption and Widening IncomeInequalities: The Dynamics ofGlobalization. Newcastle, UK:University of Newcastle.

25. Power, M. (1997). The AuditSociety: Rituals of Verification.Oxford, UK: Oxford UniversityPress.

26. Reiner, R. (1995). Counting theCoppers: Antinomies ofAccountability in Policing. InStenning, P. (ed.), Accountabilityfor Criminal Justice: SelectedEssays. Toronto, Canada:University of Toronto Press.

27. Reppetto, T., A. (1972). CrimeControl Management and thePolice. Sloan Manaaement

Aim at perfection in everything,Aim at perfection in everything,Aim at perfection in everything,Aim at perfection in everything,Aim at perfection in everything,though in most things it is unattainable;though in most things it is unattainable;though in most things it is unattainable;though in most things it is unattainable;though in most things it is unattainable;

however, they who aim at it, and persevere,however, they who aim at it, and persevere,however, they who aim at it, and persevere,however, they who aim at it, and persevere,however, they who aim at it, and persevere,will come much nearer to it,will come much nearer to it,will come much nearer to it,will come much nearer to it,will come much nearer to it,

than those whose laziness and despondencythan those whose laziness and despondencythan those whose laziness and despondencythan those whose laziness and despondencythan those whose laziness and despondencymake them give it up as unattainable.make them give it up as unattainable.make them give it up as unattainable.make them give it up as unattainable.make them give it up as unattainable.

– Chesterfield. – Chesterfield. – Chesterfield. – Chesterfield. – Chesterfield.

49 Jan - Dec 2005

OUT OF HARM’S WAYShatrujit Singh

Most Police officers dread thethought of being woken up in the middleof the night by a call from the PoliceControl Room. Reason: they know, byexperience, that it would bring bad news- snatching, robbery or perhaps adacoity in their area of responsibility.No prizes for guessing the immediatereaction. Most remember God, orwhoever they believe in, and pray forsomething ‘less problematic’.Personally speaking, I would consideran officer lucky to escape with just asnatched empty, old commercial vehicle,that too from another State, with nomajor injury to the driver or theattendant. Mark the words another state

and empty here. A crime has more newsvalue if it has a local connection. Mediadoes not bother much and in fact, to befair to them, they often don’t even cometo know of crimes involving outsiders,unless it is too serious an incident.Crime on the Railways, where no onereally belongs, is an example. Regardingcargo, the less the better. In fact,happiness of a police officer is inverselyproportional to the value of stolenproperty. A truckload of costly goodslike pharmaceuticals, cosmetics or autoparts valued at anything upward of 70/80 lakhs would be a blow measuringnothing less than 6.5 on Richter scale,with the District Superintendent of

Academy Journal 50

police feeling tremors in every crimemeeting for the rest of the year. One suchincident is enough to throw crimestatistics of the entire District topsy-turvy.

Next in the ascending order ofundesirability, in my opinion, would bea dacoity in a remote area, because asimilar incident in an urban area is likelyto create much more hue and cry in thepublic, and more importantly in themedia, for almost a week or until a biggerincident takes place in the neighboringdistrict, whichever is earlier. Still worsewould be a property crime with majorinjury to the victims.

As per the figures of NationalCrime Record Bureau, more than 6000dacoities, 18000 robberies and nearly onelakh burglaries - thefts from dwellingunits - are reported in the country everyyear. Newspapers are full of crime storiesevery day. But barring a few, nonearouses much concern. Perhapsfamiliarity has blunted our emotions somuch that these incidents have stoppedregistering. Only the victim realizes thetrue impact of a crime as he is the onewho loses his hard-earned savings andif the financial loss is accompanied withinjury or death of a near and dear one,he is devastated.

Every year, gangs of thesenomadic criminals leave their villagesand travel across several statescommitting ghastly crimes in town aftertown, never staying longer than a fewdays at one place. During the day, theyroam around selling balloons, cheapcrockery or similar stuff. That is the timewhen they select their targets, generallycorner houses or those with three sidesopen, in affluent and upcoming localitieson the outskirts of a town. After theinitial recce, they strike, almost alwayson dark nights when the visibility is poorand invariably between midnight and3 a.m. Blunt objects like heavy stones,thick branches of nearby trees aregenerally used as weapons, though

sharp weapons and even firearms arenot unheard of now a days. After forcingentry into the house, either by removingthe window-grill or by breaking openthe doors, they ruthlessly attack thesleeping inhabitants and inflict fatalinjuries on the head in order toneutralize any possible resistancebefore decamping with valuables. Someof the injured die even before theyrealize what has happened. Many othersend up in ICU. Sometimes thewomenfolk are sexually assaulted too, afact almost never reported by thevictims’ families because of the socialstigma it carries. Police comes to knowof it much later during interrogation ofthe suspects; if and when they arecaught (and that is a big if).

The only clues the police get fromthe scene of crime, or whatever is left ofit after being trampled by neighbors andwell-wishers, are fingerprints and somedescription of the criminals. Descriptionis useful only in case of known (readlocal) criminals. Fingerprints on the otherhand can certainly be of greaterassistance provided we have a nationaldatabase to match them with. This is nobig deal in this age of InformationTechnology. In fact, India is one of thefive countries in the world that have therequired technology - FingerprintAnalysis and Criminal Tracing Systemdeveloped by CMC. But the real hurdleis, Sec-7 of Identification of PrisonersAct 1920, which makes it mandatory todestroy fingerprints and photograph ofa person in case he is discharged oracquitted by a court. It implies thatfingerprints of only convicted personscan be stored in a database. And whoget convicted in our country? Onlythose who don’t have money or themuscle-power to defend themselves. Asa result, real criminals never figure inthe database of Finger Print Bureausand, therefore, fingerprints lifted fromthe scene of crime do not lead to abreakthrough. The problem is furthercompounded by the lack of a credibledatabase on population in the country.

Illegal immigrants alone are in millions.Given such a dismal scenario, solving acrime of this nature is worse thanlooking for a needle in a haystack.

What is the remedy then?Thankfully, prevention of such crimesis lot easier than detection. Simpleprecautions at the time of constructinga house, or even later, can effectivelyrule them out.

Most people build a house oncein their lifetime. With no past experience,they depend heavily on the team ofarchitect and contractor for all importantdecisions. Like typical Bollywooddirectors, our architects too suffer froma complete lack of original ideas. Theyblatantly resort to cut and paste,offering a remix of designs to theirhapless victims (read house owners).The entire emphasis is on size,arrangement of rooms, elevation, lookand cost, and in the process, securitytakes a back seat. In fact, why blamearchitects and contractors. To be fair tothem, they sell what the public wants.We have reached a situation wherecalibre of an architect or contractor isadjudged primarily on his ability tomanage completion certificate.

Coming back to the issue ofprevention of house-breakings, windowsand doors are the only vulnerable pointsfrom where a forced entry can be madein a modern concrete house.Unfortunately, the kinds of grills that arein vogue now a days are no deterrentfor thieves. Using a simple tool, a kindof mini crow-bar with one end pointed,these can be removed in no time. Incomparison, good old parallel bardesign with metal passing through thewooden frame deep into the wall on bothsides, was extremely sturdy. But, withtime, it got discarded in favor of fancydesigns. However, minor inexpensivechanges can make any design solid as arock. Readers must have observed thatwindow-grills are fitted into the woodenframe using screws. The problem with

51 Jan - Dec 2005

these screws is that they pop out themoment a crowbar is inserted betweenthe grill and the wood and pulled up.This can be effectively checked bywelding a metal strip right next to eachscrew with its other end welded to thenext parallel bar in the grill.

In case of doors, the weakest linkis a latch, which again is fitted on thedoor using screws. In the event ofsustained blows from outside, screwsare unable to hold and soon give in.Experience has shown that if nuts andbolts are used to affix latches, it can makethe job of criminals much more difficult.Similarly, distance between a door andthe adjoining window is anotherimportant parameter. If it is too short,thieves are able to open the inside latchby putting hand through the window.Architects/contractors often overlooksuch simple facts.

Modern technology has furthersimplified our job. Security systems arenow available that can detect anintrusion, even if there is no one at home,and can send alert signal simultaneouslyto several pre-programmed telephonenumbers.

Private security agencies thatoffer emergency response services

round the clock on a monthlysubscription too are available. Cost?Well, a reasonably good alarm systemfor a four-bedroom house would not costmore than twenty thousand, which isless than 1% of the total cost ofconstruction. Very little considering thesense of security it gives.

While working as a districtSuperintendent of police in Haryana, Iwas able to convince higher authoritiesand got the State Urban DevelopmentAuthority (HUDA) to amend its bye-laws making installation of securitysystems mandatory in all new housesbefore a completion certificate is issued.But the implementation, it is learnt, is laxdue to connivance of unscrupulousofficials. Sadly, people choose to payextra bribes to circumvent this bye-lawand in the process, end upcompromising their own security. Thisfurther reflects poorly on the quality oftheir advisors, again contractors andarchitects.

With little common sense (onedoesn’t have to be a genius to plan suchsimple changes) and bit of extrainvestment, independent houses can bemade quite safe to live in. It certainly isworth the effort. After all, isn’t securitythe main reason why people prefer tolive in group housing societies?

Two example of strengthening of grill bywelding V-shaped metalic strips over the

nails. Also note that the door is too close tothe window and the house owner is forced to

lock the door from inside to avoid itsopening through the window

An example of parallel bar design -Horzontal and vertical - with bars pasiing

through wood and going onto the walls

Perfection is immutable,Perfection is immutable,Perfection is immutable,Perfection is immutable,Perfection is immutable,but for things imperfect, to change is the way to perfect them.but for things imperfect, to change is the way to perfect them.but for things imperfect, to change is the way to perfect them.but for things imperfect, to change is the way to perfect them.but for things imperfect, to change is the way to perfect them.

– Constancy without knowledge cannot be always good;– Constancy without knowledge cannot be always good;– Constancy without knowledge cannot be always good;– Constancy without knowledge cannot be always good;– Constancy without knowledge cannot be always good;and in things ill, it is not virtue but an absolute viceand in things ill, it is not virtue but an absolute viceand in things ill, it is not virtue but an absolute viceand in things ill, it is not virtue but an absolute viceand in things ill, it is not virtue but an absolute vice

– Feltham – Feltham – Feltham – Feltham – Feltham

Academy Journal 52

VIOLENCE IN THE LAND OF THE APOSTLEOF NON-VIOLENCE - AN OVERVIEW OFCOLLECTIVE VIOLENCE IN GUJARAT*S M Mahindra Simha Karna

ABSTRACT

The present article describes thepossible connotations of the word“Violence” and the epithet “Collective”.It then defines violence for the purposeof this paper as socially, a negative actused to detract, destroy or deformhuman life or sources on which humanlife depends (Rajendra Sing, 1988). Itopined that collective violence is whena large number of people are collectivelyinvolved in any violence or violentactivities. The article attempts to

examine the causes and categories ofcollective violence in India, with specialreference to communal violence in thestate of Gujarat, on account of itassuming the form of organized violencethat may pose a major threat to the unityand integrity of the country. Itdiscusses randomly, various incidentsof communal riots in Gujarat and theneed to evolve strategies to find out theroot causes and remedies and suggestsfunding of studies on this directioninstead of funding the police and thearmy to combat the phenomenon.

* Revised version of the paper presented at the 26th All India Criminology Conferenceheld at University of Madras, 26lh - 28th December 2002.

53 Jan - Dec 2005

INTRODUCTION

“Mahatma Gandhi is Dead!Non-violence is dead!

Gujarat itself is not feeling very well”.

More than five decades after hisassassination in 1948, Mahatma Gandhihas become a symbol and a myth topeople of all faith. He was the father ofthe nation and the apostle of non-violence. His non-violence agitationearned us our freedom from colonialclutches. Yet we are still far from takingthe measures of this most enigmatic andremarkable apostle. Ironically Gujarat,the abode of Gandhiji, has proved to bethe country’s largest theatre ofcommunal conflicts, both in the past andpresent. Coincidentally, the first riot forwhich authentic records are availableoccurred in the city of Ahmedabad inthe year 1973. Thereafter, communalriots became part of the feature of life inthis sub-continent. In Gujarat, violencehas registered an increase,disproportionate to the promotion ofcommunal harmony, not only as regardscommunal violence, but also in themagnitude of the phenomenon and it’sassuming the nature of state sponsoredcrime against humanity. The recentcommunal violence in Gujarat (2002) haschanged the phase of communalviolence and its definitional problems,signifying the attachment of the prefix‘hyper’ to the epithet communal. Theattaching of the prefix ‘hyper’ to aknown concept or activity signified inthis paper, the involving of a collectiveresponsibility in such activity or conceptdeemed to be a collectivity ofirresponsibility unique to organizedviolence. While it is excellent to havethe strength of a giant, it is Tyrannousto use it like a giant (Shakespeare).

In Gujarat, communal violenceemanates from perceived political, socialor economic deprivation lurking inreligious fundamentalism whose extrememanifestation has always resulted in theorganized violence. Communal violence

has enabled malicious actors to causenew forms of victimization that go wellbeyond the potential loss to theindividual victims, and affects ournational economy, and indeed ournational integrity.

DEFINING COMMUNAL VIOLENCE

Before proceeding to examine, theavailable empirical evidence oncommunal violence in Gujarat, it’sdefinitional problems have to be lucidlystated. Violence is defined in this paperas a willful application of force or powerin such a way that is physically orpsychologically injurious to lives orsources on which lives depend.Communal violence is therefore thatwhich communal issues constitute theprincipal bases of contestation.

TYPES OF COMMUNAL VIOLENCE

There are two major types ofcommunal violence:

1. Intra-communal Violence and2. Inter-communal Violence

Intra communal violence is the violencethat arises within a communal group, ashas been the case of Sunni-ShiaMuslims, or Catholics-Protestants. Intercommunal violence emanates fromdisputes/differences between twodifferent communal groups. Hindu-Muslim riots are the major examples ofthis type of violence.

Inter-communal violence is endemic toGujarat, where the conflict betweenHindu and Muslims has acquiredchimpanzee behavior. The key tocommunal violence in Gujarat is the elitemanipulation of the social mechanism,which provides opportunity to inflamethe passions of gullible masses, andpromotes communal bitterness. Thus,today, Gujarat has come to reflect theconcerns and fears of its masses,especially Hindus and Muslims. Thestruggle for socio-economic, political

and cultural supremacy amongcommunities in Gujarat has altered castedynamics. Consequently, the middle andbackward castes have acquired greaterpolitical and economic clout and areasserting themselves in these spheres.These caste leaders are used by majorpolitical parties to polarize the peopleon communal lines to achieve theirnarrow political goals.

The menace of communal violencecontinues in strength, in spite ofhundreds and thousands of livesengulfed year after year.

DIMENSION OF VICTIMIZATION

Based on the available empiricalevidence, this paper examines threemajor incidents of communal violencein Gujarat in 1969, 1985 and the year 2002respectively.

THE COMMUNAL DISTURBANCESIN AHMEDABAD IN 1969

Ahmedabad, the capital city ofGujarat comprises of more than 25localities. This city has been mostsensitive city in India from timeimmemorial. It has produced a goodnumber of communal riots of low andhigh intensities. The communal riots ofSeptember, 1969 was one of the highintensity communal disturbances, everto have taken place in Gujarat during thelast century. The immediate causes ofthis riot was stated to be the incidentwhich took place at a temple - Jaganathtemple which situated along side amosque. None could believe that a merecow dung could inflame passion whicherupted in to violence that claimedinnocent lives and property.Consequently the riots spread to all the25 local cities of Ahmedabad beforemaking impact in other parts of the state.There were incidents of attack on shops,houses and religious places. Besidesarson and looting, there were incidentsof killings in the city of Ahmedabad andBaroda.

Academy Journal 54

According to the stategovernment statistics, the number ofhouses and shops damaged was 6,742,estimated at Rs. 4,23,24,069 the numberof people inured was estimated at 1,084,and the dead was put at (between 437 to660), refugees in the camps were about27,750. The following table explains theextent of victimization:

The communal disturbances inAhmedabad in 1969

Source : Ghosh, 1987

The situation was too volatile thatthe Army had to be called out to assistthe police and the State Government toput down the riots.

The table of woe (above) explainsthe number of both Hindus and Muslimswho were victimized by this riot.

The need to retain the hegemonyof the upper castes has led to thehospitality and resentment against mostgovernment directed social justicepolicies and programmes in Gujarat andto their subsequent thwarting. In 1985,the anti reservation agitation andcommunal riots grilled the city ofAhmedabad. It was a total eclipse ofviolence in which everybody was at warwith everyone. The upper caste Hinduswere fighting the lower caste Hindus onone side. Hindus versus Muslims oncommunal front, the police against thepeople and the press on a triangular war,while the government was strugglingwith the opposition. There was a totalbreakdown of law and order in the cityof Ahmedabad. The riots were not

confined to Ahmedabad only, butspread to other parts of the stateincluding Baroda, Surat, Rajkot, etc. Inthe ensuing violence, many peoplewere stabbed to death, among themMuslims and Harijans. About 60Muslims were killed, 200 injured and1000 families displaced. 2000 Muslimstook shelter in the relief camp and morethan 10,000 were lodged in the refugeecamp in Bapunagar. The victimizationin this riot is better explained in thefollowing table.

Anti-reservation Agitation andCommunal Riots 1985

(Source : Ghosh, 1987)

Those of us who hadexperienced both incidents examinedabove, September 1969 in Ahmedabadand the communal/anti reservationeclipse of 1985 in the very same city,would hopefully believe that by nowthe evil of communal riots would belaid to rest. But our compatriots inGujarat appear to be in a constant stateof readiness which reflects harboredbitterness, hatred, anger and revenge.

The recent communal violence inGujarat (2002), which has already beendescribed in this paper as ‘hyper’communal, was just a demonstrationof a heightened communalism that hasbeen planted over the years and thebeginning of a new phase of organizedviolence mechanized by the stateofficials. The pogrom was in effect astate sponsored terrorism. It would bereferred to as communal violence ifthere was a clash between the twoinvolved communities - Hindus and

Muslims; instead, the state officialsassisted miscreants to pull out citizensof the state from their various houses,and brutally stabbed them to dead. Thisform of terrorism is inconceivable in acontemporary civil society. Today, werefer to terrorism as gun actions likeshooting, suicide bombing, bombblasts, and of hijacking of aircraft, butthe betrayal of a responsibility is theworst terror ever. Yet the stateadministration was assuring itself andthe people that they are protected underit. Little wonder than, Tolstoy wrote ofthe hypocritical sympathy expressed byRussian landed gentry for the serfs: “ Isit on a moving back, chocking him andmaking him carry me, and yet assuremyself and others that I am sorry for himand wish to ease his lot by all possiblemeans except by getting off his back”.

The inept handling of the carnage(2002), resulted in the high handednessof the pogrom. Every communal violenceconstitutes terror. And every terrorleads to the moral and economicenslavement of the people and their fullsubmission to the masters. Accordingto INSAANIYAT (2002) the lossesincurred in these riots were estimatedas follow:

Hyper-Communal Violence in Gujarat2002

ECONOMIC LOSSES:

Inco m e lo sses 900 c rore s

State revenue lo sse s (Sale s tax) 120 c rore s

Central taxes lo ss 200 c rore s

N at ion al Tran sport N etwo rk lo sse s

150 c rore s

Fore ign exch an ge re serves ( fro m 407 m do w n to 80 m )

327 m illion D ollars

Lo sse s su ffered in o rnam ents in clud in g ge m s/ jew ellery

200 c rore s

Lo sse s in text ile s 300 c rore s

Ch em icals 200 c rore s

Tran sport 400 c rore s

T O T A L 2,797 C ro res

V i c ti m s N o . o f F a m il ie s d is p la c ed

T h e n o . in r e fu g e e c a m p

I n j u r e d N o . o f D e a d

H IN D U S - N o t S la t e d

- -

M U S L IM S 1 0 0 0 + 2 0 0 0 2 0 0 6 0

O T H E R S - - - -

T O T A L A b o v e 1 0 0 0

1 0 ,0 0 0 + 2 0 0 6 0

55 Jan - Dec 2005

PERSONAL LOSSES/INJURIES

The Godhra incidents left morethan 100 people dead out of which 59people were killed in Godhra traindisaster Feb,. 27th, 2002. Thousands ofpeople rendered homeless, many othersburnt live, women raped, pregnantwomen stabbed, women and childrenmolested, several killed, more than 2lakhs in relief camp.

CAUSES OF COMMUNALVIOLENCE IN GUJARAT

Communal violence might betriggered by some disguised incidencewhich might look simple, and below thissimple incidence lies a set of complexfactors, then at the bottom of thesecomplex factors are the root causeswhich gradually build up to make thesecomplex factors and lead to the basiswhich trigger off communal violence.Therefore, if we are to treat effectivelycommunal conflicts, we have tothoroughly examine and understand theroot causes of communal conflicts. Someof these causes assume the form ofreligion, political, cultural, poverty andilliteracy and socio-economic concerns.

India is a pluralistic society, in apluralistic society secularism is manifest.Secularism is the tolerance of religion /culture of all faiths. Communal violence,therefore, stems from the fact of non-tolerance of other religions by thedominant religions community. Religionitself does not produce violence. In fact,religion has been a source of socialcontrol. But of late religion has becomethe most threatening force that dividessocieties and polarizes the people oncommunal lines. In order to defendreligion, the youth of today charge withemotion especially during occasion offestivals and other religious events toengineer collision among groups whoare vulnerable enough to inflamepassion. Tragically the instigators ofthese youth are the elites who lurk inthe socio-religious organizations. Andwho perceived in the nefarious activities

of these organizations, a mechanism forpromoting political mobilization throughwhich intra-group solidarity and identitywere heightened. Therefore, communalviolence is the expression of theseheightened emotions and sentiments ofpeople such as anger, hatred, revenge,frustration, envy, etc.

The basic reason for Hindu-Muslim conflict in Gujarat is the strugglefor socio-economic and culturalsupremacy, besides the underlyingdifferences in the theological and socialassumptions of Hinduism and Islam.Sometimes, the society producesfactors, which lead to socialdiscrimination and economicexploitation, and those who suffer fromthese shortcomings of the society oftendeem it necessary to rebel against theinstitutions which precipitate suchsuffering (Gujarat, 1985). Such rebellionoften turns out to assume the form ofcommunal action and may lead toviolence. The rejection of the ideas andpractices of social and economicequality, human and citizenship rightsand secularization of society can beattributed to the growth of a cult ofcapital which permits capitalaccumulation by any means. Theresentment and violence that wasevident during the anti-reservationagitations is a case in point. Therefore,the problems of communal violence inGujarat have their roots in the morepervasive culture of the state, which hasa wider connotation in the retention of asocial order that privileges hierarchy andrelations of dominance and sub-ordination to the growth of a backwardcapitalism. In this sphere, the politicalapparatus may not be able to containthe surging reactions of the people,which can as easily manifest intoviolence.

Gujarat also lags in cultural reform.This is another factor that bedevils theattitudes and social behaviour of thepeople in the region whereas the paceof change and adoption to new value in

Gujarat is very slow the old values andnorms have not been completely wipedout. In such a situation, where oldvalues are gradually given up, and thenew values have not establishedthemselves, there is every possibilitythat persons, individuals, andinstitutions may enter into a state ofnormlessness. Because this lag hascreated ambiguity in the form of guidefor the attitude and behaviour of peopleand organization which is meant toeffectively support the attitudes, valuesand norms; all these get confused in astate of cultural lag. It becomesimperative therefore, that new valuesshould be facilitated and established,such values as secularism, peacefulcoexistence and change, values of theroles and relationship between differentelements of society. In the absence ofcollectively cherished values and normsthere is bound to be socialdisorganization which can manifest intocommunal violence.

Poverty and illiteracy are the twincauses of the under-development of thesociety. When a commanding populationof the society are illiterates, little ornothing is expected of the, vis-a-vis thechanging demands of the society.Hinduism and Islam contain so many illswhich need to be changed with thegrowing need of the society. With thevicious circle of poverty and illiteracy,these changes cannot be effectivelymanaged.

The politicization of communities,the various alignments of forces,laterally as well as vertically, and themushrooming of political parties in ourpolitical system are the factors thatengineer polarization. Some politicalparties founded on the basis of caste,religion or other communal harmony, alogical next step to communal harmony,a logical next step to communal tensionwhich triggers violence.

Since 1990’s our political systemhas undergone a great and significant

Academy Journal 56

change. From single party rule tomultiparty government, which in politicalterms are called coalition government,the strength of any government dependson the manner in which such agovernment is formed. Governmentformed on coalition basis compulsorilyadopt appeasement policies andprogrammes to satisfy the variousmushroom parties and somefundamentalists who form part of thecoalition. Weak governance therefore isa manifestation of appeasement policiesand the institutionalization of weakbureaucracies. If the bureaucracy isweak, law and order cannot be handledefficiently. In a situation where the lawand order are perverted to suit theinterest of a few, those alienated arebound to rebel and this rebellion maybe in any form of violence.

Apart from religion, political andsocio-economic causes, partisanjournalism is strongly acquiring groundin the causation of communal tension.The press in particular, have turned tobe prophets who describes in their stylewhat has happened, what is going tohappen next and the possible out come.And the people in an attempt to pre-emptthe situation engage in activitiesharmful to the social harmony.

PREVENTIVE/CONTROLMEASURES SUGGESTED

• There is probably, backgroundof grievances and rivalrybetween Hindus and Muslimsin Gujarat and exploit religiousfundamentalism or socio-economic disparities, at the costof the innocent masses who oftenfall victims of this nexus.Communal violence can beprevented/controlled by theexercise of political will along sidewith the co-operation of thepeople and deployment of forces.Unfortunately, our politicalleaders with an eye on theelections employ every tactics,regardless of the consequences,

to create election issues to furthertheir political interest. Thereforeto combat communal violence, wehave to incorporate socio-economic and political fairness inthe process of development, sothat they will serve as instrumentsfor eliminating exploitation anddiscrimination.

• Year after year our governmentsspend crores of rupees in fundingthe police and the army to combatcommunal violence. But littleregard is given to promote studiesto discover the root causes ofthese violence. No police force inIndia is free from communalism,casteism, indiscipline andpolitics. Police indiscipline wasreflected in the police riots whenthe army had to be called out insome places to disarm the riotingpoliceman, including somemembers of Para-military forces.Against this background, armybecame accepted institution,which is used frequently to putdown large-scale riots. The reportof the statesman in its editorialtitled “Weapon of Last Resort”dated 6 August, 1986, that thearmy was called upon to assistcivil power on 476 occasionsbetween 1951 and 1970; and 747times between 1980 and 1984 is acase in point. The army is theGovernment’s weapon of lastresort, to which it unfortunatelyneeds to resort to more and moreoften.

• The army and police can controlan outbreak of violence, which isa matter of a ceasefire, but theycannot investigate and redressthe hurting issues in the minds ofthe people. Therefore, tounderscore the root causes ofcommunal violence, and to evolvepossible solutions, scientificinvestigation has to be conductedto find-out the hurting issues andcauses of these hurting issues in

the minds of the people. Thegovernment should instead, fundresearch programmes in thisdirection than to spend onfunding stray bullets anduniforms. The army and policemay have the force to bind Indiaand Pakistan together, but not theexpertise and intelligencerequired to sort out theirdifferences. It is easy to suppressthe people, but difficult tosuppress their spirit.

• Even then, the handling of riotscases by the law enforcementagents especially the police andthe judiciary is another aspect ofvictimization, as justice in mostcases never gets done. Junglejustice reigns where social justicefailed. Until perpetrators andaccomplices of communal riotsare punished, our struggle forcommunal harmony willcontinues to remain a paper work.The courts, by large, failed toadminister justice promptly.Rarely, if ever, communal criminalshave been convicted in courts.Therefore, punitive measures, inline with criminal punishment,including imprisonment or fine orboth against perpetrators andaccomplices of communal crimes,should be taken, if we want todeter others from taking part innew adventures.

• Effective and efficient non-partisan bureaucracy; ourbureaucracy should bestrengthened to maintain asustainable law and ordersituation, if bureaucracy is weak,law and order will be at shambles,if law and order is at shambles,there would be no curbs onreligious fanatics who destabilizethe communal harmony.Therefore, effective and efficientnon-partisan bureaucracy shouldbe established to ward off crisesin the social order. Strong and

57 Jan - Dec 2005

non-partisan bureaucracy alonecan establish informativeintelligence agencies, which cancheck and curb the activities ofthese religious fanatics.

• Secular primary education shouldbe imbibed in the educationsystem and issues of secularprinciples included in the syllabiand curricula, so that in the youngage the children are moulded withsecular ideas, tolerance and moralprinciples. A political systemfounded in secularism must bynecessity have the will to impartthese ideals to the peoplethrough education, reforms anddevelopment. There are certaininterconnected reasons, whichprepare the grounds forcommunal violence. Thesereasons such as the ills containedin both Hinduism and Islam thatmake each intolerant of the other,have to be reformed with thegrowing needs of time. Throughsecular primary education, theevil of religious conservationcould be wiped out among thechildren, as they grow to be theleaders of tomorrow.

• Another source which is not thecause, or effect, of communalconflict but certainly of majorplayer in communal tension is themedia. If the media, especiallyprint media, could play an honest

and non-partisan role in theirreporting on violence, theseverity would be minimal. Mostconflicts, especially communalconflicts are exaggerated by themedia. But, if there could be anhonest, investigative, non-partisan journalism, our effort tocurb the evil of communal riotswould bear good fruit.

• Besides, Gujarat being a borderstate should be provided withadequate security to checkinfiltrators and enemies whosedesire is to destabilize peace andorder in this country. One of thesurest ways of enabling thisulterior desire is our continuousindulgence upon transientambitions and politicaladvantages.

• We need a state machinery whichis efficient and impartial enoughto put down communal riots andensure safety of all citizens; andwe need at the helm of affairs menand women of unquestionablecommunal character who aregenuinely above communalprejudices; only then, our goal ofpeaceful co-existence andcommunal harmony will beachieved.

The author wishes toacknowledge Mr. A.N. Prince Bede forhis contribution in the present article.

REFERENCES

1. Ghosh. S. K. Communal Riots inIndia (Meet the challenge unitedly),New Delhi: Ashish publishing house,1987.

2. Bharadwaj. K.K. Combatingcommunalism in India (Key toNational Integration), New Delhi:Mittal publications, 1993.

3. Shukla. K.S. Collective violence.Genesis and Response, New Delhi:Indian Institute of PublicAdministration, 1988.

4. Prasad, Nageshwar. Rural Violencein India, (A case study of Parasbighaand Pipra Violence in Bihar).Allahabad: Vohra Publishers andDistributors, 1985.

5. Nicolov, Nicola M. The worldconspiracy; what historians won’ttell you, Portland: Nicola, MNicolov, 1994.

6. Gurr, Robert Ted, and Barbara Harff.Ethnic Conflict in World Politics.Boulder: West view press, 1985.

7. Horowitz, Donald L. Ethnic Groupsin conflict, London: California press,1985.

8. Khan, Babuddin. Gujarat; Tribute toGandhi’s principle of Non-violence.New Delhi: Third Concept, 2002.

9. Sameeksha Trust, Culture ofcommunalism in Gujarat, Mumbai:Economic and PoliticalWeekly2002

10. Rangarajan, S. for Kasturi and SonsLtd., Yatra Drama (Cover story),Chennai: Front Line, 2002.

11. Chennai Edition, Cost of GujaratRiots colossal forum, Chennai: TheHindu, 2002.

12. Ibid. Intelligentsia’s response toGujarat Riots.

A man must require just and reasonable thingsA man must require just and reasonable thingsA man must require just and reasonable thingsA man must require just and reasonable thingsA man must require just and reasonable thingsif he would see the scales of obedience properly trimmed.if he would see the scales of obedience properly trimmed.if he would see the scales of obedience properly trimmed.if he would see the scales of obedience properly trimmed.if he would see the scales of obedience properly trimmed.

From orders, which are improper, springs resistance,From orders, which are improper, springs resistance,From orders, which are improper, springs resistance,From orders, which are improper, springs resistance,From orders, which are improper, springs resistance,which is not easily overcome.which is not easily overcome.which is not easily overcome.which is not easily overcome.which is not easily overcome.

– Basil– Basil– Basil– Basil– Basil

Academy Journal 58

FOOT PRINTS ON THE SANDS OF CRIMEBook Review by S Anandaram

The Author of the book ‘Footprints on the sands of crime’, RamakantKulkarni, retired as Director General ofPolice, Maharastra about 15 years agoafter a very distinguished service. Hewas labelled ‘India’s Sherlock Holmes’by the media for his exploits in theBombay Police. The book is more inthe form of his own ‘memoirs’ ratherthan an in-depth account of manysensational cases he had handled. Infact, he shows us how little incidentsin his own life contributed to hissuccess in work. Being auto-biographical, he tells us how a simplerustic lad, graduated into a hardboiledpoliceman. It provided him innumerable

opportunities to redress the depressed,discipline depredators and help upholdthe rule of law in a society transitingthrough a difficult period of history.

Born in a not very affluent familyin a small village near Goa, he was sentaway to his grandfather, to study, as hisvillage did not even have a school! AtAnkola, his maternal grandparentshome, when he was studying in the highschool, he appeared for a GovernmentScholarship examination and stood firstin the district. In his own words :“Before long, I had cornered a coupleof other scholarships as well and,ceased to be a burden on the family.

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Before drawing the monthly scholarship,however, I had to obtain a good conductcertificate from the headmaster, who wasa deeply religious man with a sterncountenance. He insisted that I recitean entire Canto of the Bhagavat Gitabefore drawing the monthly scholarship.Little did I realize then, that the BhagavatGita, which I had been more or less forcedto learn by that well meaning teacher,was to exercise, in the years to come,such a profound influence on me. Inmoments of despondency, wheneverything seemed lost, or whenever Igroped desperately for a solution to aformidable problem, I could drawsustenance from the Gita.”

After school, he migrated toBombay for collegiate education. A wellmeaning uncle, found him a part-time jobin the Central Bank of India and he joineda morning college. In his own words “Idid well at the college and bagged prizesfor elocution and poetry and also wonthe election to the students council. Icomposed poems, could mimicremarkably well and exhibitedconsiderable histrionic talents.” Atcollege he made a profound impressionon the teaching staff and the principalin particular, who even paid his fees onhis behalf without even being asked,when Kulkarni’s name appeared in thedefaulters list and he was unable to raisefunds in time! To quote from the bookonce again “After graduating withHonours in Philosophy and Psychology,I joined the Government Law College.Since I had to clear out of the hostel, Itook up lodgings with a young man whohad a psychological disorder, as anunpaid companion”.

He appeared for the IAS and alliedservices examination and succeeded inthe very first attempt to get into theIndian Police Service. The fact that hehad been studying while still holding aregular job, and also managed to jointhe NCC, deeply impressed theChairman and members of theCommission.

The quick transformation from ahumble, studious college student to acadet in the National Police TrainingCollege, as should be expected,produced some comic situations. Toquote : “My bearer, Karson, was adevoted old man who laid out my uniformevery morning, with the stars and thelanyard in position and my shoesshining spic and span. The parade dressin those days consisted of ankle boots,socks, and hose tops, shirt, shorts, asambrown belt and a topee, not to talkof the accessories like the sword, rifle orbaton! Even more complicated was theceremonial dress, which consisted ofriding boots, spurs, breaches, tunic, shirtand a tie, cap and a Sam brown belt witha sword! The whole business of ridingboots was highly complicated affair. Forsomeone unaccustomed to the ways ofthe ‘burra sahibs’ watching an officerwith his legs raised high, while the roombearer tried desperately to pull off theriding boots, was indeed a comic sight.I was also not accustomed to beingwaited upon and consequently, in theinitial stages at least, I was ratheruncomfortable. Dressing up for dinnerswas another pain in the neck. Thestanding orders prescribed a separatedress order for summer, winter, Sundays,holidays and so on. It is true that in duecourse, I became reconciled to this drill,for as Churchill had said, even eels getused to skinning. In fact, my entire stayat Mount Abu, was one longinspection.”

On completion of his training atMt. Abu, he was posted to AhmedabadRural - then part of Bombay State - forpractical training. Here he wasconfronted with the usefulness orotherwise of the use of third degreemethods by the police and here is whathe had to say- “I was attached, for aperiod of two weeks, to an Anglo-IndianOfficer to study the work of a Sub-Inspector. He was an impetuous officer,with a congenital dislike for desk work.Nothing seemed to please him more thangetting into battle dress and driving off

in his jeep at breakneck speed. They hadsuspended him from service thrice andprosecuted him in court twice, mostlyfor using third degree methods. Believeme, sir, he said, ‘whatever I did was forthe police department and not for anypersonal gain! “Whenever there is atough assignment, they say, I am theman for it. I do get an occasional pat.However, if something goes wrong andthere are allegations, I have to fend formyself. Now, Sir, a hardened criminal willnot voluntarily part with the booty,however much you cajole him. He knowsthat when you produce him before amagistrate for remand, he and his lawyercan complain. He also knows that whenthe remand period is over, you can doprecious little. What do I do in thecircumstances ? Do I sit back and tellthe complainant, the victim and myseniors that the culprit refuses to talk?”

I reflected a great deal on what hehad said. In fact, throughout my careeras a detective, I have tried to find anhonest and satisfactory answer to thisdilemma of the police in a democraticsociety! The police who see crime in theraw, are frequently witness tovictimization, are required to controlcrime and maintain order most the ruleof law. As functionaries charged with thatresponsibility, they belong to a system,which emphasizes initiative andeffective response. It is this tensionbetween the operational consequencesof ideas of order, efficiency and initiativeon the one hand, and legality on theother, which constitutes the principalproblem of the police. The use of thirddegree methods is punishable by law andis frowned upon by the courts, criticizedby the press, condemned by the humanrights activists and used as a convenientallegation by the accused and theirlawyers. Along with the bravadoassociated with it, goes a secretforeboding of the consequences. I amnot sure whether senior officers arereally unaware of the practice. The usualstance is that they are not a party to it.Hasn’t someone said that conscience is

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the inner voice, which warns us thatsomeone might be looking ?”

Hardly had he settled down inAhmedabad, he was transferred toPoona to be in-charge of one of the twodivisions in the city. The other divisionwas held by Mr. Dhande, a promotedofficer, considered one of theoutstanding detectives in BombayPresidency at the time. Whenever he wasfree, he would walk into Dhande’schambers, to listen to his experiencesand the lessons he had drawn from them.It was his considered view that theinvestigation of serious crime essentiallyrequired harmonious team work,executed in a sustained and professionalmanner. The emphasis was on harmony.In selecting a team therefore,compatibility more than anything elseshould be the consideration. A motleygroup of officers, all of whom, competentby themselves, but incapable of gettingalong as a team, created more problemsthan they solved, as personality clashesand professional jealousies interferedwith the task on hand. His tenure inPoona was marked by uninterruptedsuccess in the field of crime. Accordingto him, it was sheer determination andhard work at first, aided by abundantluck. Crime was not spectacular -business in those days. Preventiveaction, which is practically unheard oftoday, was considered to be veryimportant since detection of cases andconviction of offenders, effectivelycurbed the incidence of crime.

On promotion, he was posted toBeed, a rather backward district, cededby the old Hyderabad State toMaharastra, known to be crime prone.Here he and his wife concentrated onimproving the living conditions ofpolicemen and the community, sincerelydoing whatever little good they couldfor them. Simultaneously, he beganstudying various crime records,particularly at the police station villagelevel, as also an excellent book on thesubject ‘The criminal tribes in Bombay

Presidency’ by an Englishman,M.Kennedy. His hard work was aidedby hard working lower categorypolicemen who felt it was their duty torespond, help and aid their S.P. incontrolling crime and criminals in thedistrict, in return for all that Kulkarni andhis wife had done for them to improvetheir living conditions. Impressed withhis refreshing new approach, andexcellent results at Beed, theGovernment transferred him to theneighbouring ‘Parbhani’, anotherbackward district ceded by HyderabadState to Maharastra. His approach towork being the same, the results wereagain equally satisfying.

His good work earned for himpostings, in crime investigation outfits,in the cities Ahmedabad, Bombay andPoona. Even when he went ondeputation to the centre he was postedas the Director, National Institute ofCriminology and Forensic Science, NewDelhi. On a number of occasions, he wascalled upon to help investigatesensational and difficult cases evenoutside his beat as in the case of ManvatMurder cases in Parbhani District ofMaharastra or the assassination of thePrime Minister, Smt Indira Gandhi.

While he was posted as AIG,Economic Affairs wing, CBI at Bombay,the CBI at Delhi was desperately lookingfor the international smuggler,gunrunner and desperado, Walcot andhis associate, another foreigner. Walcot,it is, who had hit the headlines, escapingfrom India in a ‘Piper” aircraft withoutclearance, from Safdarjung airport atDelhi, giving a slip to airport authorities.He went to Pakistan and then to Londonto resume his smuggling activities. Hewas described as dangerously reckless,who seemed to derive a devilish pleasurein flouting and ridiculing authority.

A message was received fromDelhi by Kulkarni at Bombay that twoforeigners had escaped with a stolen car,giving the local police a slip and that he

should proceed to the area to see whatit was all about and whether it hadanything to do with Walcot. Kulkarni,being from the area, tracked theforeigners and found them to beAustralian hitchhikers who had stolen acar at Bombay and were trying to sellthe same at Goa. They were traced,handed over to Goa Police and later onconvicted for stealing the car. Thisincident, tickled Kulkarni and heengaged himself in an exhaustive searchfor Walcot in Bombay and he was ableto run him down to a Bombay hotel, withhis accomplice, Donze. They were dulyinterrogated and they laid brave all theirsmuggling activities, cheating, how theytalked themselves out of situations andhow they had daringly escaped fromIndia. After an exhaustive investigation,they were charge-sheeted, tried andconvicted.

Many years later, when he wasDeputy Commissioner, Crime, BombayCity, he had a visitor at his office,‘Walcot’, who had after completion ofhis sentence, been released and he hadcome to say ‘Goodbye’. He was lookingall dishevelled and shattered. WhenKulkarni questioned him, about hisIndian experience - he said - “Oh morethan I could stomach ! It was hell. Butyou were fair - very fair; you did yourduty ! With that he left. Perhaps we oweit to Kulkarni and his absolute integrity,fairness, and thoroughness that Walcotdoes not include India anymore in hisinternational smuggling beat.

His long tenure in the BombayCID and Bombay City crime meanthandling investigation of any numberof cases, of different hues and in thebook he has given interesting detailsabout some of them.

There were murders galore, someof which required persistentinvestigation to get to the bottom. Therewas a case of murder of a labour leader,with factions overtones, and his knownintegrity and impartiality helped solve

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the case. Also a case of murder with thefind of a headless body near themunicipal dustbin and another lifelessbody in a train both of which weresolved successfully after painstakinginvestigation.

The famous ‘serial killing’ murdercases of Bombay, which drew headlinesin Bombay press involved persistentenquiries and detailed investigations,before a near mad man Raman Raghavan,was run down and convicted for killingany number of beggars and wayfarerssleeping on the road side, all, apparentlyfor no reason at all!

A real challenge was the ‘Manwat’murder cases, which had caused anuproar in the State. In his own words“On the outskirts of Manwat in ParbhaniDistrict, some seven murders had beencommitted under the most mysteriouscircumstances and they remainedundetected in spite of the efforts of thelocal police, and later of the State CID.There was wide spread panic in the areaand the State Government came in forscathing criticism. The Home Ministersent for me and told me that theGovernment had decided to send me andInspector Vakatkar to solve the cases.Never before in the history of BombayCID had officers from the Bombay Citybeen deputed on an assignment in themoffusil.”

He was familiar with the area as hehad been S.P., Parbhani earlier. As thecar was approaching the area, Kulkarnispotted an old man frantically wantingto meet him and when Kulkarni got downand wished him, an advocate of theplace, he said he knew that the caseswould now be detected, as “Kulkarni”had taken charge of the investigation. Itis interesting how he went about thisdifficult investigation. In his own words:“ I have learnt from experience that in

criminal investigation one can neveroperate effectively in a borrowed outfit.It is important that the men should feelthat they belong to you. I thereforecollected all the men at the ManwatPolice Station that evening and toldthem that if ever we were to achieve abreak through in the case, it would bemainly through their un-stintedcooperation and effort. It was they whoformed the back bone of our system,moved about among the common folkand as the sons of soil knew the localpopulace and its prejudices better thananybody else. If only they could rallyround, the entire Police Department andeven the country would feel proud ofthem. I suggested that they fan out, mixfreely with the public, collectinformation and share it with me. I toldthem that I was not an outsider or anewcomer and that I had once been theirown District Chief. My doors werealways open and they could pass on tome whatever information they collected,irrespective of its worth. This strategypaid rich dividends. Head ConstableSangappa, who pioneered the breakthrough, had collected usefulinformation from a local. Even thereafter,it took more than a month of persistentenquiries, to unearth the wholeconspiracy as a case of child sacrificeto unearth an unknown treasure.

There is also another interestingcase of Pheroze Daruwala, a candidatefor the Lok Sabha elections in BombayCity, who committed the ghastly andcalculated murders of four helplesspersons known to him, all for gain,apparently for his election campaign.The case required persistent enquiriesbefore it could be solved and theaccused was convicted and sentencedto death. The queer character sent aDiwali/New Year greeting card to Mr.Kulkarni and his family on the eve of hisbeing sent to the gallows!

At Delhi, when he was the Directorof the Institute of Criminology andForensic Science, he was asked to assistin the investigation of the assassinationof the then Prime Minister Smt. IndiraGandhi and he did this without battingan eye lid though he was in charge oftwo full time posts.

Another interesting case, is acase of theft from Raj Bhavan, Bombay,when the Governor was away on tour.Naturally, insiders and servants weresuspected, but investigation came to adead end without any clues. The casewas eventually solved when aninformant tipped off Kulkarni thatsherwanis answering to the descriptionof some of the articles stolen from RajBhavan were put up for sale in thesecond hand market. When the case waseventually detected, it was found that acouple of drunken ex-convicts on theirprowl on a rainy night, had managed tobreak into the Raj Bhavan withoutknowing what building it was, and hadwalked away with the sherwanis, etc.,from the wardrobe, which they had beenable to open. When the dust settleddown after the outcry that if even theRaj Bhavan is not safe in Bombay, whatsecurity can the public expect, thepolicemen heaved a sigh of relief!

The book makes very interestingreading. The story value apart, there isa lot for police officers to learn. It clearlybrings out that to be a successful policeinvestigating officer, one has to havepersistence, patience, willingcooperation of subordinates, and aboveall honesty of purpose. Resultsachieved by him stand testimony to hisbeing rightly labeled ‘Sherlock Holmes’by the Bombay media.

Sadly, he passed away a monthago, and in him I have lost a very dearfriend. I dedicate this review to hismemory and pray for his soul.

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POLICE TRAINING AND FIELD REALITY(Bridging the Gap by Networking the Interface*)

Jacob Punnoose

THE PROBLEM

Many feel that there is a biggulf between the training given in policetraining institutions and the practicalreality that the trainee has to encounterin the field. Sometimes, some policeleaders have publicly taken the standthat all what is taught in the institutionmust be forgotten, if success in field isto be achieved. Such a view may be anextreme one and may not be shared bythe large majority of police officers, butall agree that training given ininstitutions does not fully meet therequirements of the job in the field.

DEFINING THE BROADPARAMETERS OF THEPROBLEM

When we speak of the interfacingthe training process with field reality, itis best to define a few fundamentals.

Training seeks to enable thetrainee to competently and effectivelyhandle any problem that a functionaryin the field has to face; it attempts toequip the trainee with the knowledge,skills and attitudes necessary to attainthat end. Training, at the same time, isalso an effort to shape field activity

On behalf of Syndicate Group, 19th MOT, National Police Academy, March 2005,Jacob Punnoose, ADGP Kerala, V.K.Panwar, IGP MP, A.K.Upadhyay, DIG, Orissa, VirendraKumar DIG, UP, Ramesh Chandra, DIG, CRPF.

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along the lines determined by declaredpublic policy and constitutionalobjectives.

Training in an institutionnecessarily takes place in an artificialenvironment; even the best simulationis only an approximation to reality. Noreal situation can ever be fullyanticipated. Therefore, a perfect matchbetween training and the real fieldsituation is hardly attainable. There aremany interactive and unpredictablefactors which turn simulations topsy-turvy; they catch the best of traineesand the best of trainers off guard.However, a training institution which hasa responsive interface with theconstantly evolving field situations canconstantly update its syllabi,methodology, simulations andemphases, so that the gap between thetrainer’s concept of the field and thereality is so narrow that a well trainedtrainee can easily bridge the gap byenlightened and zestful self-exertion.

There is no a priori assumptionthat all gaps between training activityand field reality are due to defectivetraining. There are several undesirablepractices in the field. Correct trainingdoes not seek to enable the trainee tocontinue such practices; it must enablehim to identify, resist and if necessaryreform such bad practices. Noinstitution can or should teach anytrainee any technique or skill to violatethe law with impunity or to make corruptgains or to achieve personal goalswhich conflict with the goals of theorganization. If training exhorts thetrainee to change or desist from badfield practices, such a divergence is apositive aspect of the training.

Similarly, but at the opposite endof the spectrum - there are many genuineprofessional challenges encountered inthe field, which call for extraordinarypersonal intelligence, cultural sensibility,general understanding, attitudinaladaptability, analysis of situational

peculiarities and practical wisdom.Ensuring that every trainee hasindividually been endowed with the fullextent of all these capabilities, which aremostly subjective and predetermined,may be beyond the scope of any traineedevelopment programme. When traininglarge numbers, one necessarily dealswith generalized abstractions ofperceived reality. We try to ensureminimum standards of performancerather than excellence by all. Notraining programme can totallysurmount these limitations.

The interface that we seekattempts to transcend the differentlimitations outlined above. In eliminatingbad practices in the field, trainingshould deliberately attempt adivergence, while in most other matterstraining divergence from the field is tobe minimized as far as possible.

Policing is an attempt to modifyand control (within defined andacceptable limits) social and individualbehaviour in tune with generallyaccepted norms with the support ofstate authority and general socialapprobation. Policing, in interaction withthe society, therefore attempts to makethe individual and groups to conform toidealized norms. This is a dynamicprocess in which the police ideal,policeman, the individual and the society- all get modified in the continuousprocess of interaction and changingstructures, values and systems.Training must take note of this dynamicevolutionary process.

RECOMMENDATIONS TO ENSUREBETTER INTERFACE BETWEENFIELD REALITY AND TRAININGPERCEPTION

1. Training Courses must be designedon the basis of Training NeedsAnalysis with constant review andupdating for successive batches.The capabilities required in the fieldmust be constantly kept in view.

2. Those parts of the trainingprogramme which serve neither anattitudinal purpose nor a fieldpurpose should be replaced withtraining activity felt to be morerelevant to field activity. Nothingshould be done simply because “Ithas always been done in this way;how can we change it, even thoughwe do not know the purpose itserves?”

3. Impact of training must beconstantly analyzed on a regularbasis by interaction with trainees,their field superiors and the publicat the receiving end of policeservices handled by the trainees.

4. Teaching methodology must baseitself on practical application ofknowledge and situationalvariations that the trainee willencounter. Case studies,simulations, peer groupdiscussions, mind-experiments andmind-games must be part ofinstructional process.

5. Policing concerns it with conflictsituations. The policeman isconstantly called upon to solveproblems and find solutions tohuman conflicts and humanproblems. Therefore the traineemust be constantly exhorted to seethemselves as problem solvers whohave to constantly interact withdynamic reality. Problem solvingskills must be sharpened. Dutysituations taken from contemporaryfield situations, which call for theindividual policeman’s interventionin a problem-solving situation, mustform the basis of such problemsolving exercises.

6. The policeman on the spot has totake a decision; the public expectshim to take definitive action. Veryoften, the policeman is alone, whenhe has to take a decision on aproblem, that has arisen withoutwarning. The trainee, therefore,must not be made to develop the selfimage of a mindless mechanism;

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he must be encouraged to think ofhimself as a person, who, whateverbe his personal difficulties andproblems, will sacrifice personalcomfort in a disciplined manner touphold the law and use discretioneven when acting alone.

7. The training institution must takenote of contemporary socialrealities and educate thepoliceman on developingdemocratic, social, cultural,literary and ethical sensibility,which will enable him to appreciatehis environment and to apply thelaw effectively.

8. The training course content mustinclude interactions with those inthe field and field visits. Theseexperiences should be collectivelyanalyzed, discussed and debatedwith field officers and faculty.

9. Every police training institutionmust have a Board of Advisorshaving a fair portion of field officers,enlightened members of the publicand representatives of sisteragencies. Such Advisory Boardsmust regularly meet and debatepublic expectations. They need nothave any administrative authoritybut be merely advisory.

10.The training institution must havea cell, which scans newspapers andTV channels and builds up adatabase of notable policesuccesses and notable policefailures. The media reports mustprompt the institution to collectaccurate details on incidents. Thereshould be in-house brainstormingsessions of the faculty on how touse the incident as training inputs.Even editorials, articles and reportson operations can be analyzed.

11. Members of stakeholder groupsmust periodically address thetrainees and clarify stakeholderexpectations from trainees whenthey complete training.

12. When talking about future

activities in the field, the undesirabletendencies in the field must beenumerated; the trainees must betold clearly why they areconsidered undesirable or illegal;what are the precautions that theymust take to avoid becoming thevictims of such bad practices; whatalternative desirable methodologywill achieve the purpose (wherepurpose is desirable but the fieldmethod is undesirable).

13.The training staff of the institutionmust have a fair percentage ofofficers who have done goodquality service in the field. It isbetter to keep posts vacant ratherthan post unsuitable/unwillingofficers.

14.There must be a field research unitattached to every traininginstitution, and field researchprojects must be undertaken withreasonable frequency so that thefaculty themselves developanalytical and research orientedmindsets.

15. Institutional faculty must monitorthe progress of the trainee duringthe first year in the field. For thispurpose, we may even think ofinstitutions developing interactiveweb portals, which can be used forperformance appraisal of the trainee.This can also be used to get traineefeedback and suggestions. Fieldsupervisory officers must also sendappraisal reports to the traininginstitution on each trainee.

16. Training institutions mustdevelop action-oriented check-lists for common and importantpractical field situations that thetrainee will encounter in the field.

17.Wherever possible, the traineesmust be called for a second phaseof training as part of the initialinduction, after, a reasonable lengthof exposure to the field.

18.Training institutions must haveconstant interaction with

neighbouring universities, centersof learning, experts in behavioralpsychology, communicationexperts, forensic experts, etc., sothat their inputs can be constantlyavailed of, to improve the skills andattitudes of the trainees.

19.The system of every new entrantbeing formally allotted a fieldmentor for the first three years ofhis service can be introduced. Forexample, a new Sub-Inspectortrainee sent from the institution tothe field can be attached to a goodSenior Inspector who shouldcontinuously aid, advise andcounsel him.

20.The trainee must bepsychologically equipped to handlesub-cultural peer-pressure andmala-fide superior pressuresrunning counter to desiredorganizational ethics. Success in thefield must not be merely equated -in the training institution, at leastwith good postings, good moneyand great glamour. The concept ofprofessional excellence by doingthe right thing in the right way mustbe constantly stressed. The workof a surgeon is to he judged by thequality of his operations - not bythe hospital in which he works northe charges that he levies. Similarstandards must apply to policingalso.

CONCLUSION

All persons involved in theprocess must recognize that field realityis the practical compromise between theorganizational ideal and social reality.Hence, the purpose of interfacing is tobolster the training effort to enable thetrainee to achieve the ideal through apragmatic process, in tune with thereality. At the same time, we must instillin the trainee the practical ability torecognize and respond meaningfully tocontradictory pressures and practicesand corrupting influences.

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RELEVANCE OF ETHICS TO POLICER R Varma

E thics being a scienceconcerned with human character andconduct related to morally proved normsof behaviour in society, can be of distinctbenefit to improve police efficiency andimage. Moral laws have the potential tobring about qualitative change in thework culture of police and can contributeto improve its image.

At the outset, I may state that theduty done at the inner call of conscienceand not merely as a legal or contractualobligation bears palpable moral in-put.It transcends routine and blazes a newtrail. The more dangerous theperformance of such a duty, the moreevocative and radiative are the effects

of appreciation by people. No doubt,an honestly performed dangerous dutygenerates ripples of applauds andsmoothens the heart of the performerwith a sense of fulfillment. We may notethat it is integral to the mystique of agreat moral rendering that it inspires therank and file for higher work culture apartfrom creating general goodwill andcreative aspirations. Therefore,earnestly using ethical approach bypolice in their dealings with people canbe a rewarding experience.

No doubt, with more education,increasing unemployment and risingcrime graph, police job is becomingmore challenging and risk prone

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compounded by the fact that trainingand modernization are not moving atpace. Therefore, some policemen try toshirk and dodge dangerousresponsibilities. Some policemensuccumb to unethical and illegalmalpractices such as accepting illegalgratification and even implicating theinnocent. Resultantly, the prime lawenforcement responsibility of the statetends to loose its credibility. Therefore,it is necessary to refurbish drasticallypolice efficiency and morals. One of themore effective methods to achieve theseends can be to enhance the moral out-look of the police force including theprecepts of ethics in their basic andrefresher training courses. This projectis to be designed pragmatically, so thatobservers of ethical precepts, whileperforming their duties, are rewarded andviolators are punished.

It has been noticed that in ourcountry the two main challengesconfronting the police are the factor ofpolice distancing from the public andlack of desired level of efficiency tocombat various groups of armedinsurgents and other resourcefulcriminal.

The issue of growing distancebetween police and public is a worryingfactor because it can be frustrating toboth, police efficiency and publicaspirations. In a developing democraticsociety aspiring to accomplish time-bound economic project and socio-cultural targets to meet the basic needsof a vast population, social peace is animportant priority. Therefore, there is anational demand for security and soundpublic order. To achieve this, police needpublic cooperation and evenparticipation, but it is seen that a chasmof distance between police and thepublic is exhibiting widening trends.

It is alleged that for this scenariopolice cannot disown its own part ofresponsibility which is palpablyreflected in police arrogance andarrogation. Arrogance being assumption

of undue importance and arrogationbeing assumption of undue authority,make a deadly combination to attractpeople’s dislike.

It is seen that mostly the victim ofpolice arrogance and arrogation areindividuals and sections of people wholack clout and resources. On the otherhand, while dealing with influentialcircles some police functionaries exhibitquestionable behaviour smacking ofdouble standard. Such ignominiousinstance damage police image andgenerate public criticism. The secondcause is the element of corruption. Nodoubt high grade corruption pervadesvarious echelons of our state hierarchyfrom top to bottom, but fortunatelypolice involvement in this abhorrenceof national shame comparativelyspeaking is less, not because there aremore saints in police than sinners, butbecause it is a non-trading and non-commercial department. But a sting ofcorruption by a policeman hurts themost. It is so, for two reasons. Firstly, itis the official duty of police to preventcorruption and prosecute the corrupt.Therefore, when police itself induces inthis crime, it become scandalous andpeople feel insecure and shockedbecause they have no where else to go.Secondly, the most sacrosanct things topeople are their life and property. Whenthey are attacked the victims in their hourof crisis, rush to the police andunfortunately as the allegations are, therich and resourceful perpetrators of suchcrimes win over the police officials andthe genuine victims are not meted out afair deal. Instances are not lacking whenpolice don’t even entertain complaintsof such people and some of thecomplaints are even shouted at, suchinstances add insult to injury and leavedeep scars on the heart of aggrievedpeople who can never, forgive the police.

The third factor is lack of policeimpartiality. We know that in modernsociety impartiality, speaking the truth,resisting greed etc. are axiomaticstatements observed in preaching rather

than in practice, but there are occasionsand situation, when bargaining withimpartiality can cost heavily to thecause of truth and sanctity of faith whichform the very basis of socio moralfoundation of the society. Imagine insensational cases involving people’s lifeand honour, if police ignore facts andgets involved by taking side then thevery soul of justice at the initial stage ofa probe gets killed. Such unethicalinstances vitiate the atmosphere forpolice image. Alternatively, if a policeofficer investigating sensational casesof crime resisting pressure, standsboldly firm to find out the truth, he doesa yeoman’s service to police image andmorale. In fact, such high standards ofduty are performed by officers who arerooted in moral convictions becausemorality is always a source of strengthand courage.

The worst morally indefensibleactions alleged against the police areaccusations of implication or theinnocent in criminal cases and that toounder pressure from higher circles andthe unlawful incidents of custodialdeaths. There are unpardonable excesseswhich no civil society can tolerate. Nowonder not only the elite segments butthe society as a whole rebels againstsuch excesses. In fact, the very use ofthird degree in police custody isabhorrent to a civilized society.

Having discussed these negativefactors, now it appears necessary to putinto public focus certain impressiveachievements of police, which by anyreckoning are a saga of excellence andsacrifice selflessly performed at the alterof duty. Every year thousands ofpolicemen lay down their lives in harnesswhile guarding the territorial integrity ofthe country and protecting the life,honour and property of the citizens.While performing such operations, somany officers and men have laid downtheir lives.

It is the police force of thecountry, which protects international

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borders of the country against thehostile enemies, armed smugglers,intruders, terrorists and inter-stateMafias. In encounters with theseelements thousand of policemen laydown their lives to protect the fellowcountry men.

Now it is not a bit enigmatic thatdespite all this, police continue to be atthe receiving end. For this, there appearto be two reasons. For one, in the pastthe colonial masters used the police asthe instrument of repression and cruelty.This image is still haunting the policeand secondly unfortunately, during thepresent era of independence too, peopledo not find spectacular change in policebehaviour and performance. People feelthat political bosses are still using policeand they are not equipping and enablingit as are objective of law. No doubt, afew black sheep in the police have actedas a spoil-sport, but the main reason foralleged police lack of efficiency andimage lies elsewhere. The reason is thatthe police is not the master of its ownhouse. It does not have the minimumautonomy essential to discharge theonerous law enforcement responsibility,in this vast and diverse country badlyencumbered by hordes of criminalgangs, intruders, mafias, insurgents andterrorists.

It may be added that the law andcrime analysts are of the view that ifDharamveera Police Commission Report

is implemented, some of the lawenforcement problems can get resolved.

All said and done the question stillremains that Police will have to put onextra effort to improve its image andefficiency. The imperative of security istoo vital to be neglected. Therefore, thesituation needs close assessment andproper redressal.

Political leadership and police topbrass need some soul searching becausethey owe it to the nation to deliverconditions in which human dignity andhonour cease to be under threat.Theprime responsibility of the police beinglaw enforcement, a part of which hasbecome anachronistic, it is thereforeimportant to suitably amend some of theobstructive and delay causingprocedural laws, updating police basicand refresher training courses,particularly in states, with emphasis onscientific aid to investigation andforensic science. Some of the changesin police administration concerningrecruitment, posting and transfers havealso become overdue. But the scope ofthis article being the relevance of ethicsto police, therefore, I need not digress.The importance of the vital theme ofethics and its persuasive power isobvious from the fact that it emanatesfrom the supreme source of the tencommandments of Moses and ten basicprinciples of yoga Vaman and Nivama.Therefore, morality can gainfully

influence police image and boost massapproval, have the power to affecthuman conduct and character. But it isto be noted that ethical principles maybe brief and simple to state, but to followthem practically in challenging policefunctioning is the real fire test. It is achallenge fraught with intra and interdepartments harbs and variousextraneous pressures, which may not beeasy to resist. No doubt, therefore, tousher in this epoch of ethical resurgencein police character and conduct, policetop brass will have to pioneer this moveby leading the rank and file fromshoulder because no endeavourinvolving major changes can beachieved without personal examples andin such efforts sermons and preachingdo not help, only service and sacrificecan produce results. The entire effort isto be directed at finding out the truthimpartially while doing the duty. Nodoubt serving the truth is the princeconcern of ethics and finding out thetruth during investigation of crime is theprime duty of the police, therefore toserve the cause of truth is theconfluence of both, the ethical concernsand police duty. In fact in this world thereis no achievement greater than honestlyand impartial performance of duty. Evenin Bhagwat Gita, God declares that “theone who performs his/her duty withperfect impartiality and honesty,unbothered by danger and difficulty, isthe dearest to me, such a person seesme and I see him”.

Do not think of knocking out another person’s brainsDo not think of knocking out another person’s brainsDo not think of knocking out another person’s brainsDo not think of knocking out another person’s brainsDo not think of knocking out another person’s brainsbecause he differs in opinion from you.because he differs in opinion from you.because he differs in opinion from you.because he differs in opinion from you.because he differs in opinion from you.

It would be as rational to knock yourself on the headIt would be as rational to knock yourself on the headIt would be as rational to knock yourself on the headIt would be as rational to knock yourself on the headIt would be as rational to knock yourself on the headbecause you differ from yourself ten years ago.because you differ from yourself ten years ago.because you differ from yourself ten years ago.because you differ from yourself ten years ago.because you differ from yourself ten years ago.

– Horace Mann. – Horace Mann. – Horace Mann. – Horace Mann. – Horace Mann.

Academy Journal 68

CUSTOMER ORIENTATION OF POLICEPERSONNEL AND THEIR MOTIVATIONAND JOB SATISFACTIONB Sandhya

INTRODUCTION

Service Delivery to the needysections of the society is the primeconcern of any modern Police Force.Quality of Service Delivery dependsupon the orientation of personneltowards customers. There are a numberof factors which determine the level ofCustomer Orientation of personnel.

A.K. Sinha et al. (1996) mentionthat customer satisfaction is of theperson who uses the service. Everythingthat anyone does at work is for acustomer inside or outside theorganisation. They quote Sir John

Woodcock, former Her Majesty’s ChiefInspector of Constabulary, “Eachmember of every police force, has to beimbued with a passion for the customerof his or her services, as an individual,the abusing husband, the belligerentsquatters are customers, different butequally as much customers as thevictims of crime, the frightened child,the tourist asking the time”. The U.KPolice in its operational strategy andpolicy statement mentions that publicreassurance is one of the keyresponsibilities and will be explicitlyaddressed in all policies. Particularattention will be paid to the needs ofdisadvantaged and vulnerable groups.It also mentions that treating people

69 Jan - Dec 2005

fairly in an organization is key toeffective service.

According to Gary Dessler (1983)high performance can be achieved bysatisfying employees needs and bystressing respect for employees’ rights,high morale, participative leadership,and attaining high productivity fromcommitted cohesive work groups.Employees’ morale is influenced by manysituational factors including jobsecurity, pay, advancement andleadership style.

R.S. Dwivedi (1995) describesrecent assumptions about humanmotivation. The practical reasonsbehind helping workers to satisfy theirneeds through their job is to encouragethem to do their job better. SamuelDeep’s opinion about job satisfactionis that, it is not equally important to allworkers. Needs satisfied ‘through’ thejob creates job satisfaction; needssatisfied ‘around’ the job prevents jobdissatisfaction.

A worker to whom job satisfactionis important is likely to be significantlyand positively affected by a positivework environment. By the same token, aworker to whom job satisfaction isunimportant is likely to be onlymoderately affected by a positive workenvironment.

Yvonne Brunetto and Rod Farr-Wharton (2003) mention that a numberof police services have undertakenchanges in management practices,although change has been slow becauseof significant resistance and newmanagement practices are most oftendiscussed and measured in terms of theirimpact on organizational processes -most specifically in relation to outcomes.According to them, in addition to policy -led reform, changes in the expectations,values and beliefs of western societieshave also encouraged changes in policemanagement and accountabilitypractices, police officers’ workplacebehaviour and their rewards. As a result,

most police services in Westerndemocracies now have establishedprotocols documenting how eachpolicing task should be undertaken andhow clients should be treated. Hencenot only has the organisational contextwithin which policing takes placechanged, but also the work practices ofpolice officers have changed.

THE STUDY

A research study was undertakento measure the Customer Orientation ofPolice Personnel (the Grass Root Level,i.e. the Constabulary, the Cutting EdgeLevel, i.e. the Station House Officersand the Middle Level, i.e. the CircleInspectors and Deputy Superintendentsof Police) in the Kerala Police. Thesample consisted of 287 HeadConstables/ Constables, 130 SubInspectors and 11 Circle Inspectors/Deputy Superintendents of Police. Inthe study, the Motivation, JobSatisfaction and Interpersonal Relationsof the police personnel and theirCustomer Orientation Level werecompared to find out whether there isany correlation between the abovefactors.

The level of job satisfaction,motivation, faith in the organisation andit’s leadership, job priorities, ability todo teamwork, etc. determine the generaloutlook of the police personnel, whichwill, in turn determine whether anorganization has got sufficientlyknowledgeable and service mindedpersonnel. As these are the basicfactors, which will constitute the pillarson which the structure of CustomerOrientation could be built, first, thegeneral outlook of our sample wasassessed.

i. Purpose of Joining the PoliceDepartment

55.3% of the sample joined thePolice Department for the purpose ofemployment. 28.9% joined theDepartment due to liking for the job. 9.1%

joined the Department as a lifetimeambition, whereas 6.1% were attractedto the job due to the power and statusassociated with the job. It is significantto note that only one respondent hasjoined the Police, seeking monetarybenefit.

ii. Job Satisfaction

According to Samuel Deep (1978)human needs form the motivational basefor human behaviour. The objective ofsound human relations in managementis to ensure simultaneous satisfactionof human needs and organizationalgoals. Every worker expects to satisfyhis physical needs, security needs,social needs and esteem needs to be metat work. Job satisfaction means thatimportant human needs are fulfilledthrough the performance of one’s work.

K.K. Ramachandran (1999) pointsout certain peculiar features of PoliceDepartment. Those who are really job-involved take initiative at work forrealizing organizational goals or forhelping the people. In the process theycommit mistakes and they get punishedby the Department or the Court, or getenimity of influential political persons.Thus the sincere, job involved staff aredissatisfied in the Department.

In our study, 78.5% of therespondents replied that they aresatisfied with their job. 19.2% repliedthat they are satisfied with their job tosome extent. Only 2.3% replied that theyare not satisfied with their job. Thereasons cited for dissatisfaction includelack of freedom, lack of timely promotion,insufficient salary, harassment fromsuperiors, superiors not protecting inrisky situations, forced to do thingsagainst conscience, etc. About the careerin the Police Department, 64.8% arecontent, 31.2% feel contended in thecareer to some extent. Only 4% reportedthat they are not content. Those whoare not content in the career are morefrom the Grass Root Level with 4 to 11years of experience and also from the

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Middle Level with 28 to 35 years ofexperience.

Four percentage of the sampleregret joining the Police Department.12.8% of the sample regrets joining theDepartment to some extent. From theGrass Root Level 4.5% regret joining theDepartment and from the Cutting EdgeLevel 4.6% regret joining theDepartment. From the middle level only1.3% regret joining the Department. Atthe Cutting Edge Level and MiddleLevel, there is nobody who regretsjoining the Department, who are with 4-11 years of experience. At the MiddleLevel, there is only one person whoregrets joining the Department.

iii. Interpersonal Relations

According to Samuel Deep (1978),interpersonal relationship is that aspectof organised human behaviour, whichdeals with developing harmonious workrelationship.

Interpersonal relations in anorganization are extremely important indetermining the behaviour patterntowards outside customers. When therespondents were asked whether theygenerally get support andencouragement from their superiors,64.6% told that they get support. 31.8%told that they are supported to someextent. 3.6% respondents told that theyare not. Those who felt that they didnot generally get support andencouragement from the superiors aremore from the level with 4 to 11 years ofexperience (6.2%). From the Grass RootLevel, those who have 4 to 11 years ofexperience felt more that they did notgenerally get support andencouragement from their superiors.4.9% from the Grass Root level, 2.3%from the Cutting Edge Level and 1.3%from Middle Level only felt that generallythey are not getting support andencouragement from their superiors.

As far as support fromsubordinates is concerned, only 0.8%

felt that they are not getting enoughsupport from their subordinates. Whenthe respondents were asked whethersuperiors and colleagues support themduring difficulties in personal life, 10.5%respondents told that they are notgetting such support. Those who feltthat they are not being helped inpersonal difficulties by colleagues andsuperiors are more from the CuttingEdge Level (13.8%). From the Grass RootLevel, 9.1% felt so, whereas from theMiddle Level 10.4% felt so. Nobody withthe experience of 4 to 11 years at theCutting Edge or Middle Level felt thatthey are not supported by colleaguesand superiors during difficulties inpersonal life. Nobody from the 28 to 35years of experience group from theMiddle Level also felt so.

iv. Motivation

Motivation is the force thatactivates dormant energies and sets inmotion the action of an individual.

Studies by Metcalfe and Dick,(2000) have shown that attitudinalcommitment is shaped by organizationsupport, management support andappraisal, rank seniority and tenurelength. There is strong and significantrelationship between organizationalcommitment and the respondent’sexperience of organizational support,management support, appraisal and rankseniority. Commitment falls significantlyas police officers move from constableto the rank of sergeant. In our study weexamined the above research findingsand got much evidence in their support.

Table 1.1 shows that 53.2% feltthat they are getting enough motivationto do their job with commitment. 40.1 %felt that they are motivated to someextent. 6.7% felt that they are not at allmotivated. Those who reported thatthey are not getting enough motivationare less at the Cutting Edge Level. Fromthe Cutting Edge Level 60% reportedthat they are getting motivated and36.9% reported that they are motivated

to some extent. Those who reported thatthey are not at all motivated are morefrom the Grass Root Level with 28 to 35years of experience (13.5%). The nextcategory who reported that they are notat all motivated are from the Grass RootLevel with 4 to 11 years of experience.The most important motivating factorsfor a large number of personnel aresatisfaction of the customer,appreciation from public and press,verbal appreciation from superiors, self-motivation and reward.

Table 1.1Length of Service and Motivation

of Police Personnel to do JobWith Commitment

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Table 1.4: KAP Score and JobSatisfaction

Independent sample t-test, gavea t value of 2.157 with df 492, P< 0.05 (P=0.031) which is statistically significant.

Those who are satisfied in theirjob are having better KAP Scorecompared to those who are not satisfiedin their job. Those who do not have jobsatisfaction show a lower KAP Scorethan those who regret joining theDepartment.

The KAP Score of those whoregret joining the Police Department aregiven in Table 1.5. Those who regretjoining the Department have low KAPScore.

Table 1.5: KAP Score of Those whoRegret Joining the Police Department

Independent sample t-test gave at value of 1.802 with df 492, P < 0.05(P = 0.072) which is statistically notsignificant.

As the personnel who aregenerally satisfied with their job showmore Customer Orientation than thosewho are not satisfied in their job,conscious efforts to ensure jobsatisfaction for more personnel wouldbetter the Customer Orientation of the

vi. KAP Score and Motivation

The KAP Score of those who getenough motivation to do their job withcommitment and the KAP Score of thosewho do not get motivated are given inTable 1.3.

Table 1.3: KAP Score andMotivation

Independent sample t-test gave at value of 3.709 with df 492, the resultshowed high statistical significancewith P< 0.0001.

Those who are motivated to dotheir job with commitment show betterKAP Score. The personnel who are notmotivated have the least KAP Score.Their KAP Score is even less than thatof those who regret joining theDepartment and those who are notsatisfied in their job. Motivation seemsto be even more important than JobSatisfaction, as far as CustomerOrientation is concerned. This may bedue to the fact that CustomerOrientation can be developed only inpersons who are willing to interact withpeople and help others. Those who arenot motivated to do their job withcommitment may not be able to interactwith people in an effective manner. Thispoints towards the need for motivatingthe personnel to do their job withcommitment.

vii. KAP Score and Job Satisfaction

The KAP Score of those who arehaving Job Satisfaction and those whoare not having Job Satisfaction are givenin Table 1.4.

The Customer Orientation ofPolice Personnel was measured using ascale in which the Knowledge, Attitudeand Practices of Police Personnel werescored using a set of questions. TheScore obtained, i.e. the Knowledge,Attitude, Practice (KAP) Score indicatedthe level of Customer Orientation of thePolice Personnel.

v. Knowledge Attitude Practice (KAP)Score and Categories

The Mean KAP Score of thesample was found to be 174.40 with aStandard Deviation of 31.55.

KAP Score of Grass Root Level,Cutting Edge Level and Middle Levelpersonnel are given in Table 1.2.

Table 1.2: KAP Score of the ThreeCategories of Personnel

ANOVA test showed that thedifference is statistically significant withF value of 33.916. P < 0.0001, which isstatistically highly significant.

It can be concluded that thesupervisory officers, i.e. the CircleInspectors and Deputy Superintendentof Police (Middle Level Officers) aremore Customer Oriented compared to theconstabulary and the Cutting EdgeLevel. The Sub Inspectors (CuttingEdge Level) show much more CustomerOrientation compared to theconstabulary. Customer Orientation isleast among the Constables.

Are you getting enough motivation to do your job with commitment?

n Mean KAP Score

Standard Deviation

Yes 461 175.7939 31.0521

No 33 154.9697 32.5763

Do you feel satisfied in your career?

n Mean KAP Score

Standard Deviation

Yes 474 175.0295

31.2245

No 20 159.5500

36.3484

Do you regret joining the Department?

n Mean KAP Score

Standard Deviation

Yes 83 168.7229 31.9570

No 411 175.5499 31.3866

Grass Root Level

n Mean KAP Score

Standard Deviation

287 166.0348 30.7613

Cutting Edge Level

130 180.2385 29.6512

Middle Level

77 195.7403 24.9301

Total 494 174.4028 31.5541

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police personnel in general. Those whoregret joining Police Department alsomay not show much interest in customersatisfaction.

vii. KAP Score and ProfessionalFreedom

“Freedom to” (rather than“freedom from”) is the freedom to createthe results we truly desire. (Peter MSenge 1990)

The KAP Score of those who feelthat they have got sufficientProfessional Freedom to deal withCustomers and those who do not feelso are given in Table 1.6.

Table 1.6: KAP Score andProfessional Freedom in Decision

Making

Independent sample t-test, gavea t value of 4.995 with df 492 andP < 0.0001, which is statistically highlysignificant.

It is seen that those who think thatthey have professional freedom to take

a decision while they deal withcustomers show a better KAP Score.This leads to the conclusion thatprofessional freedom with regard todecision making with respect toCustomers leads to increased CustomerOrientation of police personnel.

CONCLUSION

The result of the analysis can besummarized as follows:

1. Customer Orientation of policepersonnel is more among the MiddleLevel Officers compared to the CuttingEdge Level personnel. CustomerOrientation is least for the Grass RootLevel personnel. This points towardsthe need for more training,communication, etc at the Grass RootLevel with a view to inculcate the spiritof Customer Orientation in them.

2. Better-motivated personnel (thosewho are motivated to do their job withcommitment) show better CustomerOrientation. Hence various motivationaltechniques may be used by PoliceForces for inculcating the spirit ofService Delivery.

3. Those personnel who are satisfied intheir job show better CustomerOrientation. Those who regret joiningPolice Department show poorerCustomer Orientation. Aptitude testsat the recruitment stages andassessment of job satisfaction level ofthe personnel periodically during the

career with measures to improve jobsatisfaction of personnel are requiredfor improved Customer Service.

REFERENCES1. Brunetto, Yvonne, and Farr-

Wharton, Rod. (2003) TheCommitment and Satisfaction ofLower-Ranked Police Officers -Lessons for Management” Policing:International Journal of PoliceStrategies & Management ISSN1363-951X, Vol- 26, November

2. Deep, Samuel. (1978) HumanRelations in Management,California: Glencoe PublishingCompany

3. Dessler, Gary. (1983) AppliedHuman Relations. Virginia; RestonPublishing Company Inc, A Prentice-Hall Company.

4. Dwivedi, R.S. (1995) HumanRelations and OrganisationalBehaviour, New Delhi: Rajiv Beri forMacmillan India Ltd.

5. Metcalfe, B. and Dick, G. (2000) ‘Isthe Force Still With You? MeasuringPolice Commitment’, Journal ofManagerial Psychology, Vol. 15No.8, pp.812-32.

6. Ramachandran, K. K. (1999) JobSatisfaction, Job Involvement andOrganizational Commitment ofPolice Station Staff in Mumbai City,Mumbai: Unpublished DoctoralThesis submitted to Tata Instituteof Social Science

7. Sinha, A.K., Jain, $N. andAsthana, R. (1996) ‘StrategicManagement and Planning Towards21st Century in U.K. Police: Lessonsfor Indian Context’, Unpublishedreport submitted to the Governmentof Maharastra.

If you be pungent, be brief;If you be pungent, be brief;If you be pungent, be brief;If you be pungent, be brief;If you be pungent, be brief;for it is with words as with sunbeamsfor it is with words as with sunbeamsfor it is with words as with sunbeamsfor it is with words as with sunbeamsfor it is with words as with sunbeams

– the more they are condensed,– the more they are condensed,– the more they are condensed,– the more they are condensed,– the more they are condensed,the deeper they burn.the deeper they burn.the deeper they burn.the deeper they burn.the deeper they burn.

– Southey – Southey – Southey – Southey – Southey

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ACTIVITIES OF BPR&D - AN INTRODUCTIONAS R&D ORGANISATIONR C Arora

INTRODUCTION

Bureau of Police Research &Development was set up on 28 August1970 in furtherance of the objective ofthe Government of India formodernization of Police Forces. Itmanifests a more direct and activeinterest in this subject by the CentralGovernment. Late Dr. Anand SwarupGupta, an IP officer of 1939 batch (UPcadre) was appointed as its founderDirector.

The BPR&D was assigned theresponsibility of promoting a speedyand systematic study of police problemsin a changed society and to bring aboutrapid application of science andtechnology to the methods andtechniques of the police functioning inthe country. The BPR& D has over the

years evolved as a multi-facetedconsultancy. A number of additionalresponsibilities have been assigned tothe BPR&D over the time, which is areflection of the trust, which theGovernment and Police forces havereposed in the BPR& D. The services ofthe BPR&D have also been utilized bypolice forces of friendly foreigncountries for human resourcedevelopment of their police officers.

MOTTO AND MISSION

The Motto of BPR&D is“Promoting Good Practices andStandards”. In pursuance of this Motto,the Bureau follows the Mission of:-

1. Investing in Research &Developing Policies andPractices for Police andCorrectional Services.

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2. Seeking and Securing Appro-priate Technology for EnhancedPerformance.

3. Investing in Human ResourceDevelopment through Trainingand by Imbuing Scientific Temper.

4. Formulating Strategic Vision toMeet Future Challenges andAssist Stakeholders.

5. Building Police as a ProfessionalService for People.

6. Fostering Co-operation andCoordination among State &Central Police Organizations forCommon Vision.

ORGANISATION COMPARABLETO BPR&D

Following are some of thecomparable organisations functioning inthe world:

· United Kingdom (Britain) -Research Development &Statistical Directorate;

· United States of America (USA) -National Institute of Justice; and

· Japan - National Police Agency.

ORGANIZATIONAL SET-UP

To begin with, the BPR&D had thefollowing Divisions:-

(i) Research Division(ii) Development Division

Thereafter, following Divisionswere added to the organization:

· Training Division (1973)· Forensic Science Services (1983)· Correctional Administration (1995)

In the meantime, followingorganizations have been set up to takeover some of the functions of BPR&D:· Institute of Criminology &

Forensic Science (1976) (renamedas Lok Nayak Jaiprakash NarayanNational Institute of Criminologyand Forensic Science)

· National Crime Records Bureau(1986)

· Directorate of Forensic Science(2002)

RESEARCH DIVISION

It is involved in identifying theneeds and problems of the policeservices in the country and initiate,stimulate and guide research in thisfield, in coordination with variousacademic and professional institutions.It also organizes seminars, symposia,workshops and congress on varioussubjects of topical interests to the policeforces in India to develop nationalconsensus and draw actionableconclusions.

BPR&D plays an important role inthe Modernization of Police Forces inthe States. A Concept Paper for PoliceModernization was prepared in the year2000, which is used as a reference pointfor the up-gradation of infrastructure forthe State Police Forces. Bureau is alsoclosely associated with Modernizationof Prison Administration in the countryas well as development of CoastalSecurity with the Police Forces of theCoastal States. The expert inputs fromBPR&D obtained and used gainfully bythe State Police Forces and CPOs toprepare their Modernization Plans. Asan ongoing exercise, BPR&D obtainsinformation from the States and CPOsrespecting their sanctioned and actualPolice strength in various ranks,expenditure incurred on Police and infra-structural facilities available in thoseStates.

An Annual compilation of suchstatistics and information under “Dataon Police Organizations” is publishedevery year and circulated among all theStates and CPOs for use by them as areference book.

BPR&D also provides a usefulforum for the officers and practitionersin the field of Criminal Justice to writeabout various aspects of policing andthen get it published in our quarterly“Indian Police Journal” which has very

wide range circulation in the country andabroad. A monthly “Newsletter” inEnglish and “Police Vigyan” (quarterly)in Hindi are also published by theBureau.

RESEARCH GRANT

The Bureau invites researchproposals from different educationalinstitutions, non-governmental orga-nisations as well as governmentorganisations on police and prisonrelated subjects as well those related tothe criminal justice system. TheStanding Committee on Police Researchis the apex body to finalize theseproposals by giving its concurrence.The committee also aids the BPR&D inthe following manners:-

(i) To advise the Bureau inidentifying the problems andneeds of the Police forces; assistin preparing feasibility studiesand give advice on the award ofresearch projects to the outsiders.

(ii) To assist the Bureau inmaintaining liaison with outsideinstitutions in the area of policeresearch.

(iii) To keep a continuous watch onthe progress of various researchprojects.

The Bureau has completed 146research studies till date either byoutsourcing or by in house study. Someof the important and interesting researchstudies undertaken are: -

• Use of Forensic Science inCriminology Justice Adminis-tration.

• To estimate quantities and impactof Influx of Small Arms andExplosives in India.

• A study on Creating a FunctionalPositive Police - Politician Interfacefor Public Order Maintenance.

• Impact of Traffic Fine on MotorVehicle Drivers.

• Crime Against Women and Role

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of Section 498 -A of Indian PenalCode, 1860.

• Evolving norms for the Policebuildings in the States.

DOCTORAL FELLOWSHIP INCRIMINOLOGY & POLICESCIENCE

Doctoral fellowship inCriminology & Police Science wasstarted in the year 1986-87 with theapproval of MHA. The main objectiveof the fellowship is to encourage andfoster research and development in thefield of Criminology and Police Science.

The scope and the field of thestudies covered by these fellowshipsinclude the priority areas pertaining toCriminology and Police Sciences andCorrectional Administration. This willalso cover police organization andfunctioning, criminal investigation, roleof the police in changing society, crime,criminal and victim, criminal justicesystem, organization and functioningof criminal courts, correctionaladministration, juvenile delinquency,prisons and prisoners, their correctionrehabilitation and the like. The numberof fellowships awarded each year is sixand the duration is tenable for the periodof 3 years. The value of fellowship isRs. 5000/- p.m. for the first two yearsand Rs.5600/- p.m. for the third year. Thecontingency grant is Rs.5000/-per annumalong with the departmental assistanceof Rs.3000/- every year. The fellowshipsare given to such candidates who areregistered with any recognized IndianUniversity for Ph.D programme. Besides,the candidates should have 55% marksin Master Degree in Criminology,Sociology, Social work, Psychology,Social Anthropology, PublicAdministration, Law or Political Scienceor M.Phil. So far 43 thesis have beensubmitted.

CONFERENCES/SEMINARS

A number of important Confer-

ences and Workshops are arranged bythe Bureau with participation from dif-ferent disciplines of the Criminal JusticeSystem. Some of the important Confer-ences/Workshops which have beenrecently conducted/sponsored by theBureau are given below:-

1. Crime Against Women Workshop(2004).

2. Crime Against SC/ST Workshop(2004).

3. Crime Against Elders Workshop(2004).

4. National Conference for Womenin Police (Biennial-2005).

5. All India Police Science Congress(Annual- 2005).

6. National Workshop on GoodPractices in Police Housing(2005).

7. Seminar on Public - PoliceInterface with Special Peferencefor Traffic Police (2004).

8. Use of Handcuffs - Rationaleapproach (2003).

9. National Seminar on DevelopingStress Management Programmesfor Law Enforcement Personneland their Families (2004).

10. Workshop on Crime AgainstWomen- Role of Sec.498 A IPC(2003).

11. Sponsors All India Conference ofIndian Society of Criminologyevery year.

DEVELOPMENT DIVISION

The Development Division keepsitself abreast with developments in theapplication of science and technologyto police work in India and othercountries and studies new procedureswith a view to promoting induction ofappropriate equipment and techniquesin police infrastructure and functioning.It constantly scouts for newtechnologies and scientific productsand examines feasibility of theiradoption in our country. It has been

laying standards in procurement/application of number of equipmentlike Body Armours, Bullet ProofVehicles, Weapons, Motor Vehicles,etc. The responsibility of this divisionhas increased many folds ever sincethe States have embarked upon theprogramme of upgrading theirweaponary/equipment, under Moder-nization of Police Scheme.

TRAINING DIVISION

The Training Division wasestablished on 13 September 1973,pursuant to the recommendations ofGore Committee on Police Training tofunction as Central Police TrainingDirectorate to cater to the training needsto the police forces in the country. It isalso involved in evaluating the existingprogrammes and designing trainingstrategy and methodologies of thetraining establishments throughout thecountry by assessing the future needsof police training. This Division liaiseswith the State Police TrainingInstitutions and other academic bodiesand helps in preparation and circulationof syllabi and training materials ofdifferent specialized courses. It alsoconducts quality audit of police traininginstitutions to facilitate theirupgradation. The Training Division isinvolved in big way in both training ofPolice officers from friendly foreigncountries in India as well as organizingspecialized courses for Indian Policeofficers both in India and abroad withthe help of foreign trainers. Similarly, theTraining Division has also conductedtraining needs analysis of various ranksin many friendly countries with a viewto helping them develop trainingprogramme for their police personneland to avail of such facilities in Indiawhenever needed.

CENTRAL DETECTIVE TRAININGSCHOOLS

Three Central Detective TrainingSchools, headed by a Principal each, arefunctioning at Kolkatta, Chandigarh and

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Hyderabad under the Training Divisionof BPR&D. State Police Forces withmiddle level are imparted short term andlong term training in the scientifictechniques of investigation in theseschools.

CORRECTIONALADMINISTRATION DIVISION

The Correctional AdministrationDivision was established in theBPR&D on 16 November, 1995, with aspecific charter of functions, whichincludes responsibilities relating to thestudy of problems affecting prisonadministration and the promotion ofresearch and training in this field. TheDivision has not only been sponsoringresearch and training programmesthrough State Governments andacademic institutions but has also beenundertaking on its own various projectson issues deserving priority attentionfrom the view point of public policy. Thepriorities in this regard are determinedon the basis of a national consensusemerging at various fora, such asAdvisory Committee on PrisonReforms, Regional Meetings of theHeads of Prison Departments of States,and Vertical Interaction Courses forPrison Officers.

This Division undertakesdepartmental research as well assponsor research projects on priorityareas in the field of correctionaladministration in consultation with theAdvisory Committee on Prison Reforms,which is the apex body for this purpose.Since 1995, 7 research projects werecompleted and 6 research projects arein hand with this Division.

TRAINING PROGRAMMES

BPR&D organizes five VerticalInteraction Courses for Prison Officersin each region of the country every year.In addition to it, 24 training programmesare being organized by the BPR&D forthe prison officers of middle supervisorylevel on Human Rights in Prison

Management as a part of the NationalAction Plan of the Government ofIndia on Human Rights Education.

CONFERENCES/SEMINARSThis Division organizes and

participates in following seminar/conferences:-

1. All India Conference of DG/IGPrisons and Secretaries (Prisons)of all States/UTs (Annually).,

2. All India Prison Duty Meet(Biennial)

3. Asian and Pacific Conference ofCorrectional Administrators(Annually).

MODERNIZATION OF PRISONADMINISTRATION

BPR&D identified deficienciesin the living conditions of prisonersdue to overcrowding in prisons andalso the dilapidated conditions of staffquarters available in various Statesand UTs. Thereafter, a scheme forModernizing the Prison Adminis-tration was formulated by the Bureau.With the result, Ministry of HomeAffairs, Government of India hasintroduced a non-plan scheme for fiveyears with effect from the financialyear 2002-2003 with an outlay of Rs.1800 crores on cost sharing basis inthe ratio of 75:25, the share of theCentral Government being 75% andthat of the State Governments of 25%.One of the main objectives of thisscheme is to reduce overcrowding inprisons by way of constructingadditional prisons and to repair andrenovate existing prisons. In Additionto it, this scheme provides provisionfor adequate sanitation and watersupply in existing prisons for theprisoners and residential quarters forprison staff as one of their basicminimum needs on 100% level ofsatisfaction.

PUBLICATIONS• Compendium on judicial

pronouncements of Supreme

Court of India and various HighCourts on working of prisons.

• Compendium of the NGOsinvolved in Prison programmesin India.

• Directory of prison officials inIndia (yearly).

• UN Training Manual for prisonstaff (Hindi version).

• UN Training Guide for prisonstaff (Hindi version).

• Three handbooks on Rights andDuties of Prisoners, Prison Staffand Visitors.

• Status Reports on, ‘Implemen-tation of Recommendationsmade by the National ExpertCommittee on Women Prisoners’headed by Justice Krishna Iyer.

• Status Reports on, ‘Implemen-tation of Recommendationsmade by the All India Committeeon Jail Reforms (1980-83)’headed by Justice A.N.Mulla.

• Status Reports on, ‘Implemen-tation of Recommendationsmade in the United NationsStandard Minimum Rules’.

• All India Model Prison ManualBPR&D is headed by an officer of

the rank of Director General of Police andassisted by two Inspectors General/Directors. There are three DeputyInspectors General/Deputy Directors inResearch, Development and TrainingDivision who are assisted by AIG/Assistant Directors and other officers/staff.

The important telephone numbersof the BPR&D are:1. Director General- 011-24361849

011-24362425 (Fax),011-24369825 (Fax)

2. 011-24363054, IGP/Director (Trg)3. 24361726 IGP/Director (R&D)4. Director (Admn.) , 011-24362401

PABX No. 011-24360371/24362330/24365009/24365010Fax No. 011-24362425and 011-24369825E-mail: www.dgbprd@bol.net.in