KASHMIR PEACE INITIATIVE: DEPRIVING PAKISTAN ARMY OF A LIFELINE
The appointment of the new
interlocutor for Kashmir, former Intelligence Bureau chief, Dineshwar Sharma,
has potential to deprive the Pakistani army of a raison d'être. The potential
for this needs to be examined in order that the peace initiative get the
requisite heft. There are currently two schools of thought. One is that the
Pakistan army requires to keep stoking the fires in Kashmir in order to stay
atop the power grid in Pakistan. By this reasoning, India has limited options
in Kashmir, faced as it is with a proxy war. Thus, the peace initiative can at
best be a conflict management tool. The other is that there are genuine
grievances in Kashmir, which if tackled with wisdom by India can result in a
dissipation of any Pakistani locus standi in Kashmir. The peace initiative can
bring a closure to the troubles in Kashmir, cutting off the oxygen of
alienation that enablesproxy war. This is a conflict resolution approach. The
relative salience of the two approaches will determine the direction of the
initiative, whether it reaches its full potential as a conflict resolution measure
or whether the appointment is merely a conflict management tool.
The current peace initiative
The current peace initiative in
Kashmir was launched in late October this year.
Given the coincidence in timing of the first visit then to New Delhi of the US
secretary of state, the appointment of the new interlocutor was taken as having
something to do with the visit. The critique was that the appointment was to
undercut any US push for getting India to talk to Pakistan, as part of the new
US policy in Afghanistan, unveiled by President Donald Trump at a speech in
late August.
Since the new policy was rather severe on Pakistan for its nursing of terrorism
and provision of sanctuary to terrorists on its soil, the US had decided to
give Pakistan one more chance to come aboard the international quest against
terrorism. Pakistan for its part has no doubt tried to milk its last chance to
its advantage, requiring US pressure alongside on India in relation to India’s
strategy in Kashmir and Afghanistan. Since Rex Tillerson, on his inaugural
visit to India flew in from Pakistan, New Delhi wanted to preempt any messaging
from Pakistan for talks through Tillerson. Thus, commentators observed a link
between the visit and the appointment.
India could point to the appointment of a Union government’s representative for
talks with Kashmiris in case the matter came up with the US. India could argue
that as a responsible government it is fulfilling its obligation towards it
people to return normalcy through all means, but it is not beholden to talk to
neighbours under the threat of a gun.
Irrespective of
any international impetus to the initiative, there is a case for the same in
strategic lights. The army chief, appraising the initiative, has said that it
is from a position of strength.
He was referring to the higher tempo of operations in Kashmir since the
surgical strikes of the previous year. There is the ongoing Operation All Out
under which over a 200 terrorists have been eliminated, mainly foreigners. This
summer there was no resumption of the agitation of mid 2016. Along the Line of
Control (LC), India has remained proactive, tamping down on dozens of
infiltration attempts. There are cracks appearing in the terrorist ranks, with
some, such as Zakir Musa, the former Hizbul Mujahedeen commander, being cast
out of mainstream terrorist ranks for his advocacy of the Islamist strain.
The
Center’s hardline in terms of talks with the umbrella separatist organization,
the Hurriyet, has kept the separatists on leash. This has been further
tightened by the National Investigation Agency’s raids on the terror financing
money trail.
Internationally, India has been on the offensive, attempting to isolate
Pakistan for its support for terrorism, both in bilateral settings and in
multilateral fora. At the UN General Assembly session in September, in its
right of reply to the speech by the Pakistani prime minister citing Kashmir, India
characterized that state as ‘terroristan’.
Finally, there was the winter setting in when the operational dynamics usually
subside, allowing greater space for political thrust lines. Thus, it would appear
that New Delhi set the conditions for a peace initiative. It now bears taking
to its logical conclusion.
This energy
behind the initiative is crucially dependent on which of the two approaches
predominate in the corridors of power. A new book on India’s engagement in
Afghanistan since the departure of the Soviet Union suggests that there are
lobbies at play in policy and decision making circles that seek to influence
the direction and outcome of policy. The book describes the interplay between
the relative power of the ‘conciliators’ and the ‘partisans’, with the former
depicted in brief as soft-liners and the latter as hard-liners.
Drawing analogy, it can be said that a similar policy tussle may have preceded
the peace initiative in Kashmir and is also is likely to attend its course. The
two lobbies are loosely taken here as minimalist, conflict management oriented,
and maximalist, conflict resolution aspirant.
The conflict
management lobby can easily be taken as practical and aware of the uphill
struggle. They are also cognizant of the Pakistani ability to keep stoking the
fire, besides of the other ill winds from West Asia. They are possibly also
political tuned in to the Indian political scenario in which major political
concessions may neither be thought desirable nor possible. The conflict
resolution lobby for its part is the more ambitious. They are more aware of the
limitations of a security solution to a political problem. Equally aware of the
arc of instability stretching westwards, they wish to put out the fires that
can invite adverse attention towards India. They are more sensitive to the
possibilities enabled by the liberal underpinnings of India’s constitution. A
creative legal thrust line duly backed politically, in light of a strong
center, can bring about an internal settlement. There are examples in the North
East which can serve as precedent. Thus both approaches have some weight. It
bears probing further which can deliver more and better. The criterion to judge
this is against which approach will facilitate Pakistan’s falling out of the
equation better.
The conflict management approach
The conflict management approach
is realism inspired in that it posits conflict as a given condition, with
states in an adversarial relationship engaged in a zero sum game. Since a proxy
war is on in Kashmir, there is little that can be done than to manage the
consequence. This requires a multipronged approach. However, despite the
security aspect to fore, the economic, social and developmental angles are of
consequence. This has been the Indian approach to Kashmir. As part of this,
interlocutors have also periodically been dispatched across the PirPanjals,
sometimes, such as most recently the Yashwant Sinha led Concerned Citizens’
Group,
in response to a spike in violence on the streets. The interlocutors’
engagement with the people and stakeholders not only a cathartic effect, but
the reports are also useful in tweaking the governments’ response as necessary.
The conflict management approach has space for peace initiatives, but stops
short of going the full distance on the political track. It uses – to its
critics instrumentally – the peace process for calming the situation and
bringing it back under control. In a sense the peace prong of strategy is to supplement
the security prong. This distinguishes it from the conflict resolution
approach, wherein the ‘resolution’ is sought on the political track, with the
other prongs of strategy being supportive of the effort.
The interlocutor
has set himself a limited, if realistic, ambit, restricting himself to tamping
terrorism. He wishes to target the youth so as to keep terrorist ranks from
swelling.
This
indicates the initiative does not have an ambitious mandate. The results are
already apparent, with the police working on encouraging surrenders of locals.
The upshot is in a manageable subconventional operations situation, which
troops on the counter insurgency grid can handle with routine aplomb. The
political fallout is in the Kashmir issue receding from headlines, making for
little pressure on New Delhi to ‘resolve’ it either internally or through
interfacing with Pakistan. This is in keeping with the policy of marginalizing
the separatists within and ‘no talks’ with Pakistan without. The byproducts
are, for example, externally, in keeping the US at arms’ length, and
internally, with political dividend for the ruling party depicted as strong on
defence. Thus, the initiative is within the wider framework of a tougher
national strategy and posture.
The conflict
management approach has an advantage of keeping a lid on the situation till the
government wishes to take it up on its terms. The home minister for instance
has indicated that the government has some ideas on conflict resolution.
The management of the conflict therefore needs to continue till such time this
is rolled out. The military template is thus an intrinsic part of the
resolution menu. The stability necessary for moving to the next stage of
conflict resolution is provided by conflict management. Indeed, even while
resolution is unfolding – in the next phase – management of violence would in
any case require to continue apace. This indicates an overlap between the two
approaches, making them less antagonistic than supplementary. Conceptual
clarity on this can help the switch or gear shift as necessary.
Conflict resolution approach
Conflict management is what is
usually settled for when conflict resolution is not seemingly possible or
thought desirable. Conflict resolution through victory in war for example,
especially against a nuclear power, may not be desirable. Alternatively, it may
not be possible in light of an impossible compromise required, such as in case
of Kashmir, granting independence. However, short of independence – or, worse,
it’s joining Pakistan – conflict resolution can be envisaged, such as oft said,
within the parameters of a liberal constitution.
The conflict
resolution approach by no means abjures use of force. It is predicated instead
on intent backed by a sound plan. This entails negotiations, with a willingness
to compromise – within bounds - on part of stakeholders. The design of these in
relation to participants, location, pace, agenda, perception management,
spoiler handling, contingency planning, timelines, parallel processes, creating
and sustaining political capital and managing of the external are of
significance. It requires a battery of experts with multidimensional expertise
and experience and a lead negotiator synergizing the initiative. The lead
negotiator has to have political savvy, integrity, stamina and moral courage.
The other lines of operation such as the use of force, governance and
development, are subordinated to the requirements stemming from the meander of
the negotiation.
By this
yardstick the current peace initiative in Kashmir would have to evolve
considerably to measure up to the demands of conflict resolution. From Sharma’s
initial press statements and the two visits (at the time of writing) to the
Valley suggest that this is a preliminary stage, with Sharma at best testing
waters intending to come up with a conflict analysis for the government. This
can be the first step for the major initiative to follow, either with the lead
horse changed midstream or with Sharma continuing in position. This can be
rolled out once the winter’s operational respite is taken to shore-up political
intent, put in place a negotiation team, chalk out a plan, whistle-up the
infrastructure, broadcast the agenda and manage perceptions. The following year
can see a dedicated round of talks on the key political questions, including
the taboo word,
azadi. If interpreted
as autonomy, conflict resolution comes within reach. The release of political
detainees, pardon for stone throwing youth, leashing the NIA, modulating
operations, progressively rolling back disturbed area notifications are some of
the arrows in the negotiator’s quiver. Whereas the army chief has indicated
that currently military operations will not be effected,
further
down the road narrowing these to directing them solely at foreign terrorists could
be called for. Precedence of managing an operations drawdown exists in the
ceasefire of year 2000 in Kashmir, suspension of operations against various
groups
in Assam and the ceasefire in Nagaland.There is
also the Muzaffarabad based jihad council to think of. This would require
opening a line to Pakistan.
The key question
to answer is whether Pakistan would bite. The conflict management votaries
believe otherwise. They see a vested interest of the Pakistani army in stirring
the pot. This critique needs being taken on board in a shaping of the regional
security environment. Pakistan has over the past few years complained of India
creating a ‘two front’ problem for it. India has attempted to isolate it
diplomatically. It has objected to the Chinese life-support of the economic
corridor. It has articulated a claim to the northern areas. It has suspended
the comprehensive bilateral dialogue. The US is readying to weigh in against
Pakistan finally. India and Pakistan have had their national security advisers
talking all through this. These are leverages that India can now cash in on to
hedge its Kashmir initiative. Pakistan for its part has the option to cry
‘victory’ and quit. It had attempted to disconnect from its Kashmir commitment
even during the Musharraf years. If it can take credit – at least
propagandistically – for a return of peace in Kashmir, it has a face saver.
India could allow it a line to separatists,who having an increasing stake in
the peace process can persuade Pakistan to back off. Alongside, Pakistan would
require to initiate DDRRR (Disarmament, Demobilisation, Repatriation,
Reintegration, Resettlement) best practices for its ‘good terrorists’, with
India seeing how to coopt the Pakistan based Kashmiri terrorists. By no means
can all this be done in quick time, but strategy demands identifying the steps
towards such an end.
Conclusion
The debate as carried here is likely
informing decision making on the future direction of the peace initiative.
Currently, it is within the conflict management parameters. It has potential to
move towards conflict resolution. This is predicated on the assessment decision
makers arrive at on whether upping the peace ante would make Pakistan fall out
of the equation. There is an element of risk taking in this. Political decision
makers are usually not impressed by the argument that a decision requires
political courage. Political survival requires discretion, even if possible
political dividends from bold decisions are given a go-by. They cannot chance
elusive political dividend at the risk of national interest. However, the tough
line in Kashmir and against Pakistan over the past three years makes strategic
sense only if it is taken to a logical conclusion. Having sensitized Pakistan
and conditioned it thereby, extracting the necessary mileage from it would
require the strategy to move from conflict management to conflict resolution. Allowing
Pakistan off the hook with a face-saver might just see it take the chance on
offer – to sidle off its Kashmir engagement to set its own house in order.
PTI
(2017): “
Permanent solution to Kashmir issue is based on
five 'C's: Rajnath Singh,” Economic Times,
11 September, viewed on 20 November, https://economictimes.indiatimes.com/news/politics-and-nation/permanent-solution-to-kashmir-issue-is-based-on-five-cs-rajnath-singh/articleshow/60460250.cms