Interview

26/11 Has Served as a Wake-Up Call, And Maritime Security has Witnessed a Major Overhaul’
Director General, Indian Coast Guard, Vice Admiral Anil Chopra

26/11 Has Served as a Wake-Up Call, And Maritime Security has Witnessed a Major Overhaul’
Director General, Indian Coast Guard, Vice Admiral Anil Chopra

What are the present operational challenges for the Coast Guard?

Even prior to the 26/11 incident, the Coast Guard had a stiff operational challenge on its hands, considering that it had to undertake continuous surveillance of over 2.2 million sqkm of India’s EEZ, and respond to distress calls in the Indian Search and Rescue Region which spans over four million square kilometers, with a limited fleet of relatively old ships and aircraft. Post 26/11, the Coast Guard has now been given additional responsibility of coastal security in India’s territorial waters i.e. upto 12 miles from our coastline.

This is clearly our biggest operational challenge as we have a coastline of approx 7,500 Kms and 1197 islands. By the very nature of the medium and the maritime environment, it is difficult to achieve foolproof security. What we therefore need to do is to minimise the risks through increased assets and manpower, innovative use of technology, better training and sound support systems for our ships and aircraft.

Any coastline is bound to be vulnerable to threats of attacks by non-state actors. The area required to be monitored is vast and the assets available for surveillance are limited. The problem is compounded by the thousands of fishing boats who proceed to sea each day, and are not yet bound by any legal mechanism that enables monitoring and control. Fortunately, 26/11 has served as a wake-up call, and maritime security has witnessed a major overhaul, with legislation on the anvil.

In India, both commercial shipping and fishing for livelihood date back to ancient times. Many of the commercial and fishing harbours in operation today have been in existence for over a century. The unfortunate part is that they are co-located in most places. Most major and non-major ports in India are not yet compliant with international security norms. Even where major ports have complied with the International Ship and Port Facility Security Code (ISPS) of the International Maritime Organisation (IMO), their security stands severely compromised on account of this co-location. Solutions are not easy to come by because of the sensitivities involved in disrupting the livelihood of millions of fishermen. Fearing that security needs could override livelihood concerns, the National Fishworkers Forum has submitted a petition to the government seeking that their livelihood not be jeopardised.

Whilst we augment force levels, enhance maritime surveillance by deploying additional surface and air assets, intensify boarding operations, usher-in modern technology such as a Coastal Surveillance System, Vessel and Air Traffic Monitoring Systems and so on, it shall still be a major operational challenge to match rapidly growing security demands on account of enhanced traffic at upcoming ports and new projects such as Single Point Moorings, Atomic Power Stations and valuable assets on the coastline. Clearly therefore, the need of the hour is to garner adequate actionable intelligence to be able to focus assets and energies where and when required.

What are your present capabilities and how do you plan to enhance them?

Beginning with two old frigates and five Seawards Defence Boats (SDBs) of the Navy, the Coast Guard has made rapid progress over the last 31 years. The service has now developed into a well rounded maritime force comprising 43 ships, 19 boats/air cushioned vehicles and 45 aircraft/helicopters, in addition to 55 ships, boats and craft, presently under construction at various shipyards. Further, the government has approved acquisition of a large number of additional modern ships, boats and aircraft, in order to augment the force levels of the Indian Coast Guard in the quickest time-frame possible. These include Offshore Patrol Vessels, Interceptor Boats, Fixed Wing aircraft and Twin-Engine Helicopters.

What are your present surveillance capabilities? How do you coordinate with the Navy for the same?

The Indian Coast Guard is equipped with a wide inventory of assets to undertake surveillance of the EEZ including Advanced Offshore Patrol Vessels, Offshore Patrol Vessels, Fast Patrol Vessels, Inshore Patrol Vessels, Interceptor Boats and Crafts, and Air Cushion Vehicles. The air arm of the Coast Guard includes Dornier fixed wing aircraft, Chetak helicopters and the indigenous Advanced Light Helicopters.

The Coast Guard-Navy synergy is ever palpable. The Coast Guard has lateral linkages with the navy at all levels. The two services operate in a common domain towards common objectives and hence it is inevitable that they share a common doctrine. There is not an exercise conducted by the navy, either standalone or in conjunction with the army or air force for rehearsing procedures for countering full-fledged hostilities, port defence, coastal defence, naval control of shipping, etc. wherein the Coast Guard has not participated in equal measure. The Coast Guard has the distinction of participating alongside the navy in times of crisis such as in Op Vijay, Op Parakram etc. Op Tasha and Op Swan are examples of ongoing joint operations in Palk Bay and Gujarat/Maharashtra coast respectively.

Operational success in actual operations and in routine surveillance is ensured by the institutionalised participation of the Coast Guard in joint exercises and operational coordination between the two services at all levels. The mechanism will be revolutionised once the National Command Control Communications and Intelligence network links the operations rooms of the two services.

Further, post 26/11, Standard Operating Procedures are being fine tuned to ensure seamless security. Integrated common maritime domain awareness will then be achieved enabling a synergised and optimum response to any contingency. Joint Operations Centres to be jointly manned by ICG and IN with inputs from other central and state government agencies, are also being set up.

There were reports about issuing IDs to fishermen. How is the Coast Guard looking into the issue?

The fishermen Identity Cards will be issued centrally through Registrar General of India (RGI) to all fishermen of nine coastal states and four Union Territories. The basic information of the fishermen will be provided by the coastal states and UTs to the RGI in a prescribed format. The necessary database will be maintained by NIC and the Identity Cards will be in the form of tamper proof smart card which will be machine readable. The card readers will be provided to Indian Coast Guard ships to verify the smart card of the fishermen at sea. This is a welcome initiative of the government of India, in view of the fact that presently most fishermen do not carry any identity card, and those that are carried are usually mutilated and defaced, as they are in paper form. The Indian Coast Guard has requested the NIC to provide some space in the card for adding additional inputs if the fisherman has been a violator of any security provisions.

Are you satisfied with the present strength of Coast Guard or there are accretion plans?

The government has acknowledged the need for augmenting of Coast Guard at the earliest. In order to strengthen the Coast Guard, the Cabinet has accorded approval of various proposals with respect to the Coast Guard which include:

(a) Acquisition of modern ships, boats and aircraft, which will double the force levels in a few years.

(b) Setting up of additional Coast Guard Stations at strategic locations in the western, eastern and island regions.

(c) Across the board increase in afloat manpower by 20 per cent and shore support units by 30 per cent, in addition to approval of a wide variety of specific manpower cases.

What kind of cooperation shall we see between the ICG and the ministry of shipping in the coming days?

As per the allocation of Business Rules, the DG Shipping is responsible for performance of duties both as a Flag State as well as a Port State. The roles assigned to the Indian Coast Guard under it’s mandated charter, and the powers vested with it under the Merchant Shipping Act, 1958, require it to functionally cooperate with the DG Shipping on a continuing basis.

The Coast Guard is responsible for Search and Rescue in the Indian Search and Rescue Region, a responsibility delegated to it under a Resolution adopted by the ministry of shipping. Under this resolution, the DG Shipping is represented in the National Maritime Search and Rescue Board chaired by the DGICG, and is responsible for coordination with the International Maritime Organisation in all matters pertaining to Search and Rescue. One particular responsibility under the resolution includes review and updating of the Search and Rescue Plan. The Coast Guard also works in close coordination with the DG Shipping to bring in any amendments to the Merchant Shipping Act or to enforce the existing provisions in order to enhance safety of life at sea. A vivid example is the ban on vessels over 25 years of age from operating in Indian waters.

Piracy is another issue which calls for coordination between the organisations. The DG Shipping operates a communication centre at Mumbai and promptly relays any information of ship security alerts that may be raised by Indian flagged ships to enable the Coast Guard to respond.

The Coast Guard participates in the initiatives of the ministry of shipping for enhancing the security of port facilities. The Coast Guard Commander in every district is a proactive member of the Port Security Advisory Board. Further, the DG Shipping is responsible for the implementation of Long Range Identification and Tracking and its connectivity to nodes located at the Maritime Rescue Coordination Centers of the Coast Guard. A major project for maritime surveillance consisting of a chain of static sensors along the coast is being established by the Coast Guard with close cooperation of the Directorate General of Lighthouses and Lightships under the ministry of shipping.

The Coast Guard interacts with the ministry of shipping (MoS) for marine environment protection issues as well for establishing regulations or policies to protect the marine environment and to control marine pollution. An Indian Coast Guard officer forms part of the Indian delegation to the Marine Environment Protection Committee (MEPC) meetings at International Maritime Organisation (IMO). There is also continuous interaction with the MoS, for establishing contingency plans to prevent pollution by Hazardous Noxious Substances (HNS) being transported through the sea.

Besides, the Coast Guard contributes through participation as member on the Board of the individual Port Trusts and in the meetings of the National Shipping Board and the Maritime States Development Council organised under the auspices of the ministry of shipping. Indeed, the Coast Guard interfaces with the DG Shipping not only whenever an issues regarding search and rescue, piracy, casualty, or an oil spill but also any other subject related to flag and port state control and compliance of international regulations pertaining to ships, etc.

What are the roles and missions of the Coast Guard and how have they been modified after 26/11 attacks?

The Indian Coast Guard was constituted as an armed force of the Union by an Act of Parliament, to undertake the predominantly peace time tasks subsequent to the extension of Indian sovereignty over the Exclusive Economic Zone (EEZ), surrounding the Indian sub continent by the Maritime Zones of India Act 1976. The duties and functions are enshrined in the Coast Guard Act 1978.

The Coast Guard Act was passed in the Parliament on Aug 18, 1978 and brought into force on Aug 19, 1978. As per the Coast Guard Act

(a) It shall be the duty of the Coast Guard to protect by such measures, as it thinks fit, the maritime and other national interests of India in the maritime zones of India.

(b) Without prejudice to the generality of the provisions of sub section (a), the measures referred to therein may provide for:

(i) Ensuring the safety and protection of artificial islands, offshore terminals, installations and other structures and devices in any maritime zone.

(ii) Providing protection to fishermen including assistance to them at sea while in distress

(iii) Taking such measures as are necessary to preserve and protect the maritime environment and to prevent and control marine pollution

(iv) Assisting the customs and other authorities in anti-smuggling operations

(v) Enforcing the provisions of such enactment as are for the time being in force in the maritime zones, and

(vi) Such other matters, including measures for the safety of life and property at sea and collection of scientific data as may be prescribed.

(c) The Coast Guard shall perform its functions under this section in accordance with, and subject to such rules as may be prescribed and such rules may, in particular, make provisions for ensuring that the Coast Guard functions in close liaison with Union agencies, institutions and authorities so as to avoid duplication of effort.

The Indian Coast Guard over the years has been carrying out support functions to many agencies and departments of the Central government and addressed issues as it encountered with panache and result oriented. Understanding the need to organise various operations at sea through a competent entity, the central government has empowered Indian Coast Guard to establish leadership in the areas of Offshore Security, Search and Rescue and Marine Oil Pollution.

To ensure smooth and effective functioning of the offshore security arrangement at the national level, the Director General, Indian Coast Guard has been designated as the Chairman of Offshore Security Coordination Committee (OSCC). Further, the DGICG is also the Chairman of the National Search and Rescue Board, which meets every year to discuss issues that affect the SAR preparedness, safety of fishermen and mariners at sea and the Central Coordinating Authority for taking measures to address oil pollution response in the Maritime Zones of India.

Post 26/11, the Indian Coast Guard has been entrusted with the additional responsibility of Coastal Security in Territorial Waters. Further, the Director General Indian Coast Guard has also been designated as the Commander, Coastal Command with the responsibility for overall co-ordination between Central and State agencies in all matters relating to coastal security.
ICG had started a joint cooperation initiative with friendly neighboring countries. What is the update on that? How do you envisage the future of this multi-lateral process?

India is a maritime state and the maritime environment is essentially international in character. Considerable advantages are to be accrued through international cooperation in issues relating to maritime safety, maritime security, and preservation and protection of the marine environment. Such cooperation is not only in the ‘common interest’ of the coastal states but could also constitute critical Confidence Building Measures (CBM)s and enhance confidence and trust among states. Moreover, cooperation is rather obligatory consequent to ratification of international treaties such as United Nations Laws of the Sea Convention 1982 (UNCLOS), Search and Rescue Convention 1979, Convention on Oil Pollution Preparedness Response and Cooperation (OPRC) 1990 etc.

The realm of international cooperation of the Indian Coast Guard comprises a wide variety of activities, differing in scale, complexity and sensitivity. These range from the traditional ‘low-level’ activities such as personnel exchanges, ship visits, joint training (basic and specialised) to ‘high level activities’ such as information and intelligence exchanges, joint bilateral exercises, memoranda of understanding, and bilateral agreements. The primary multi-lateral organisation where the Indian Coast Guard is the lead focal agency is Regional Agreement on Combating Piracy and Armed Robbery at Sea (ReCAAP) and South Asia Cooperative on Environment Protection (SACEP).

The ReCAAP Agreement which came into force on 04 September 2006, was negotiated within the framework of an inter-governmental expert group meeting by 16 countries including Bangladesh, Brunei, Cambodia, China, India, Indonesia, Japan, Republic of Korea, Lao Peoples Democratic Republic, Malaysia, Myanmar, Philippines, Singapore, Sri Lanka, Thailand and Vietnam. An Information Sharing Centre (ISC) has been established in Singapore and focal points in respective countries for sharing of information on piracy and armed robbery. The Director General Indian Coast Guard is nominated by the government of India, as the governor from India in the Governing Council (GC) of the Information Sharing Centre (ISC). An officer has also been deputed to the ISC at Singapore as Assistant Manager (Research). Bilateral cooperation between the Indian Coast Guard and other maritime nations is vibrant.

(a) Japanese Coast Guard: Apprehension of the pirated vessel MV Alondra Rainbow by the Indian Coast Guard in November 1999 off the west coast of India was the beginning of dedicated, focused and regular interaction between the two Coast Guards. Joint exercises between the Indian Coast Guard and the Japan Coast Guard have since been institutionalised, and conducted annually, alternately in both sides’ waters. A new beginning was made in November 2005, when both sides agreed to a Memorandum of Cooperation (MoC) on cooperation between the two Coast Guards. The MoC for providing mutual assistance for SAR, Pollution Response and trans-national counter crimes efforts between Indian Coast Guard and Japan Coast Guard was signed in November 2006.

(b) Korean Coast Guard: A MoU on anti-piracy and search and rescue operations between the two Coast Guards was signed in March 2006. Joint exercises between ICG and KCG are an annual feature and conducted alternately in each other’s waters.

(c) Maldives Coast Guard: The exercises with the Maldives National Security Service (Coast Guard) code named ‘DOSTI’ were institutionalised in 1991. These exercises are conducted on an annual basis. The Indian Coast Guard also provides training on specialised subjects to the MNS CG personnel in the ICG training centre.

(d) Royal Oman Police Coast Guard (ROP CG): A delegation visited Oman in March 2007 to establish a collaborative relationship between the Coast Guards of the two countries. ICG ships are regularly visiting Oman on goodwill visits, during which they also conduct Search and Rescue and Pollution Response exercises for mutual understanding of each Coast Guard capabilities.

(e) Pakistan Maritime Security Agency (PMSA): A ‘hotline’ between ICG and Pakistan Maritime Security Agency has been established following a Memorandum of Understanding (MoU) signed between the two agencies in October 2005. High level delegation meetings are conducted alternately, for review of the MoU, and discuss matters of safety, security and marine environment protection.

(f) United States Coast Guard (USCG): Since its inception, the Indian Coast Guard has maintained close interaction with the US Coast Guard. The engagement with the USCG includes high level interaction, training of Indian Coast Guard officers with the USCG, hosting of USCG ship visits, invitation to each other’s seminars and symposia etc. In order to further strengthen the bilateral co-operation in Coast Guard specific roles including inter-alai Search and Rescue, Pollution Response, Anti-Piracy and other inter-related maritime crimes including Anti-Drug and Anti-Smuggling operations, the Commandant of the US Coast Guard visited India in April 2009.

(g) Heads of Asian Coast Guard Agencies Meeting (HACGAM): The Asian Maritime Security Initiative was set into motion by the Japanese Coast Guard, with a string of measures drawn up to address maritime security concerns, including terrorism. During a meeting held in Tokyo on 17/18 June 2004, wherein 16 countries including India participated, a resolution called the ‘Heads of Asian Coast Guard Agencies meeting on Asia Maritime Security Initiative 2004 (AMARSECTIVE-2004)’ was agreed upon. Since the adoption of AMARSECTIVE-2004, four meetings of the Heads of Asian Coast Guard Agencies have been held. The DGICG represents the Indian Coast Guard at the HACGA meetings. The fifth meeting is scheduled to be held in July 2009.