Good Morning Kashmir - Open The Magazine
For those interested in whether it would withstand judicial scrutiny
×
COVER STORY
Good Morning Kashmir
Correction and redemption in the sudden death of Article 370
PR Ramesh + Ullekh NP + Siddharth Singh| 09 Aug, 2019
(Photo Illustration: Saurabh Singh)
JUST PAST 11 am on August 5th, when Union Home Minister Amit Shah announced the scrapping of special status for Jammu and Kashmir and the reorganisation of the restive region, he was making history, scripting a new chapter in the integration of India left incomplete by the leaders of modern India. The rich Himalayan region, also the world’s most militarised zone, is now being split into two Union Territories, one with legislature and the other without. Shah has put an abrupt end to decades of kid-glove treatment meted out by the Centre to the Muslim-majority state that became part of India in 1947 through an instrument of accession and enjoyed a near-autonomy from Indian laws, including several fundamental rights, the right to information, and a raft of others.
The moment when Shah dropped the bombshell in the Rajya Sabha was historic, but the pursuit has been long. As early as the late-1940s, Hindu nationalists had fought tooth and nail the decision of the first Prime Minister, Jawaharlal Nehru, to offer provisions that treated Jammu and Kashmir as a state more equal than the others. They even risked their lives for the cause. Syama Prasad Mookerjee, founder-president of the Bharatiya Jana Sangh, the BJP’s predecessor, had quit as minister from the Nehru Cabinet following the 1950 Delhi Pact with Pakistan and had later launched a ferocious campaign against Article 370 which, he argued, was a threat to national unity. In 1953, demanding the repeal of the legislation, he famously travelled to Jammu and Kashmir along with his young protégé Atal Bihari Vajpayee, who was destined to become the BJP’s first prime minister. At Pathankot, the Bengali academic and leader instructed Vajpayee to return to Delhi while he proceeded to Jammu and Kashmir where he died under house arrest in June the same year under what his colleagues claim were mysterious circumstances. Since then, abrogation of Article 370 had been a rallying cry for the Hindu nationalists.
IN THE RUN-UP to the General Election earlier this year, Prime Minister Narendra Modi, at a rally on April 1st, hit out against the dynasts of Kashmir, referring to their parties as “shops” and their activities as “deception” to bamboozle New Delhi. His message was unambiguous. He lashed out at what he called the unholy nexus between the Congress and these self-appointed custodians of Kashmir whose days, he warned, were numbered. Article 370 has figured in all BJP poll manifestoes since 1984, and the likes of Vajpayee and others had continually raised the issue in both Houses of Parliament over the last seven decades. The August 5th Bills on Kashmir tabled by Shah in the Upper House, which included presidential orders—cleared later by both Houses of Parliament with emphatic margins and even with unexpected support from several opposition parties—effectively upended the Nehruvian political legacy that had endured for long. Forceful arguments in Parliament by the likes of Vajpayee and Sushma Swaraj—who sadly passed away just a day after the Government’s move—and popular mobilisations by several others, including the young Modi who was part of the Ekta Yatra of 1991-1992 that culminated in the unfurling of the Indian Tricolour at Lal Chowk, Srinagar, on January 26, 1992, as well as many similar bids to attract public opinion to abrogate Article 370 may have appeared feeble individually, but not as collective action. And then, August 5th happened.
Any modern constitution, let alone the Indian one, is based
on an understanding that no part of the founding document
is immune from changes desired by succeeding generations of
citizens and their representatives in a legislature. To do so would be to turn a constitution into a theological text, beyond the reach of humans. History shows this to be untrue
The preparations for the August 5th Rajya Sabha move on Kashmir were planned to a T.
Both the Prime Minister and the Home minister were convinced of the need to deploy more troops in Jammu and Kashmir to ensure no untoward incident took place following the tabling of the Bills. Yet, since utmost secrecy had to be maintained to ensure that the Bills sailed through Parliament, most people close to the duo had only vague ideas about the real plan, with the probable exception of Solicitor General Tushar Mehta. People who had to spring to action to beef up security in the region at a time when the Amarnath Yatra had started included National Security Adviser Ajit Doval, Principal Secretary to the Prime Minister Nripendra Misra, Home Secretary Rajiv Gauba, Jammu and Kashmir Governor Satya Pal Malik and state Chief Secretary BVR Subrahmanyam. Heads of security agencies were also directed to step up security, especially in the notorious trouble spots in the Valley.
On August 4th, on the pretext of an intelligence tip, state governments of Uttar Pradesh, Bihar, West Bengal, Kerala, Madhya Pradesh, Assam, Andhra Pradesh, Telangana and so on were asked to bolster security arrangements in communally sensitive areas. On the morning of August 5th, around 8.30 am, Shah summoned Law Minister Ravi Shankar Prasad and briefed him about the comprehensive plan in the Rajya Sabha for that day. Later, at the Cabinet meeting, details of what was in store for the day were divulged and instructions were given shortly afterwards to select people to parley with those who had been in touch with political parties, including the BJD, BSP, AIADMK, TRS, YSR Congress Party and others to back the Government in its crucial Kashmir bid. These parties were approached through various people to drum up support for the Bills without specifying the details.
Amit Shah arrives at Parliament, New Delhi, August 5 (Photo: AP)
A few of them dithered, and therefore the Rajya Sabha session was tense for the floor managers assigned by Shah. Some of the parties agreed to throw their weight behind the Government only much later, just ahead of the vote in the Upper House. Barring parties such as the Congress, Trinamool, parties of the Left and the Nitish Kumar-led Janata Dal(U), all others had some idea that the Government was contemplating a big push over Kashmir in the House, especially over Article 35A. Shah called up Nitish Kumar just before he reached Parliament. The Bihar Chief Minister mildly opposed the decision (and later asked his members to stage a walkout in the Rajya Sabha). Over the next few days though, his intransigence turned into apparent surrender and the JD(U) spokesperson said that all was well that ended well.
Meanwhile, External Affairs Minister S Jaishankar was asked to brief the P5 (five permanent members of the UN Security Council) countries and a few others after the Bill was presented in the Rajya Sabha. Notably, at the Cabinet meeting, Prime Minister Modi cautioned the attendees against any show of triumphalism, reaffirming that his Government was not pandering to any section to pull in votes but mapping a determined route towards integrating the country. Reminded Shah: “Don’t forget that Article 370 denied the refugees who came from Pakistan to Jammu and Kashmir the right to citizenship. They never got a chance to participate in the electoral process of the nation. When refugees who came to J&K could not even become councillors, refugees who went to other parts got every right due to them. Two of them went on to become the prime ministers of this country. Democracy could never flourish in the state because of Article 370. Under President’s rule, local bodies have been formed and the Centre has already sent Rs 3,500 crore for these bodies.”
THE GROUNDWORK
The Kashmir decision had equal doses of symbolism and substance. The President’s order stated that, ‘…the President, on the recommendation of Parliament, is pleased to declare that, as from the 6th August, 2019, all clauses of the said Article 370 shall cease to be operative…’ Again, if the language was simple, its import was momentous.
Behind the bold decision, one that eluded generations of politicians in India, lay careful legal and legislative preparations. Article 370 is probably one of the most complex parts of the Indian Constitution. In its wording, interpretation, impact and end, the article has defied unpacking for long. Its removal from the Constitution began on Monday when Home Minister Amit Shah introduced two Bills and moved a resolution to be adopted by the House. The resolution moved by Shah stated that, ‘this House recommends that the President issue a public proclamation under Article 370(3) that all sections of the article cease to operate from the date specified by him’. These were almost the same words used by the President a day later when he issued the proclamation.
“I must make it clear that this Government will not talk to those who take inspiration from or are being handled by Pakistan. We will not talk to Hurriyat. We will have dialogue with the people of the Valley and we are ready to remove their apprehensions, if any,” says Amit Shah, home minister
While the proceedings were on in the Upper House, the President issued a separate notification under Article 370—The Constitution (Application to Jammu and Kashmir) Order, 2019 or Constitutional Order 272—that superseded the Constitutional Order that extended the Constitution of India to Jammu and Kashmir issued in 1954. This was a major order that included Article 35A, a provision that allowed the Jammu and Kashmir legislature to define persons who could be permanent residents of the state and confer rights and privileges on them. With that, Article 35A ceased to exist even as Parliament deliberated the resolution asking the President to abrogate Article 370.
Accompanying this package, Shah also moved the Jammu and Kashmir Reorganisation Bill 2019, which was later, on Tuesday, passed by the Lok Sabha as well. Crucially, Constitutional Order 272 added a sub-clause to Article 367 of the Constitution (as it applies to Jammu and Kashmir) that states, ‘in proviso to clause (3) of Article 370 of this Constitution, the expression ‘Constituent Assembly of the State referred to in clause (2)’ shall read ‘Legislative Assembly of the State.’’ This is a crucial addition that was essential for the repeal of Article 370. The original Article 370 had a proviso that made it essential for the Constituent Assembly of the state to recommend the abrogation of Article 370 before the President could issue a proclamation of the kind that he did on August 6th. The entire package of Bills, resolutions and Presidential proclamations was necessary to ensure that the abrogation of Article 370 and the bifurcation of Jammu and Kashmir pass judicial scrutiny, something that will happen as those from the opposition mount a judicial challenge on political grounds.
A sheep herder in Srinagar, August 8 (Photo: Reuters)
BAGGAGE OF HISTORY
Since the day Maharaja Hari Singh, the then ruler of Jammu and Kashmir, signed an instrument of accession that merged his state with India, the terms of that marriage have been contentious. Originally, India had the right to frame laws and intervene in just three matters: defence, foreign affairs, communications and some ancillary matters. The instrument was signed barely a month after India gained Independence. The country’s Constituent Assembly had begun functioning in December 1946. At that time, the final shape of the country was unknown and the British plan to partition India lay six months ahead, in June 1947.
Two years later, four representatives from Kashmir joined the Constituent Assembly. Sheikh Abdullah, Mirza Mohammad Afzal Beg, Maulana Syeed Mohammad Masoodi and Moti Ram Bagda were instrumental in securing a ‘special provision’ for their state in India’s Constitution. That provision, Article 370, re-asserted the limitations imposed by the instrument of accession signed in 1947. Since 1950, this provision has been behind the tug of war between Kashmir’s politicians and the Government of India, irrespective of the party or the person who has held the reins of power in New Delhi.
Since its inception, Article 370 was placed in Part XXI of the Constitution that deals with ‘temporary, transitional and special provisions’. The Article itself made it clear that the President could by public notification declare that the Article has ceased to exist, something that President Ram Nath Kovind did on Tuesday. The placement and the wording of the Article make it clear that it was indeed meant to be a temporary provision until the political settlement between the state and the Centre was firmed up. It is worth noting that a similar instrument of accession was signed by the rulers of hundreds of states in the period between 1947 and 1949 when their territories merged with India. Within a decade, the Constitution applied fully as did the laws made by Parliament in these areas. Kashmir remained an exception.
This was totally due to Article 370, which expressly limited the powers of Parliament to make laws for Jammu and Kashmir. Over time, ways were found to implement Indian laws and the Constitution to the state. The process began in 1950 itself when the first Constitution (Application to Jammu and Kashmir) Order was issued on January 26th, 1950. Since then, this device has been resorted to dozens of times. This set in motion a conflicted dynamic. Every time such an order was passed, politicians in the Valley would claim that the state’s “autonomy” guaranteed by Article 370 was being “eroded”. For the Union Government, the compulsion was different: a part of the Union could not forever be treated on an entirely different footing from the rest of the country.
The ruckus over the bifurcation of the state follows an old mythology. The claim that conversion of J&K into a Union Territory is unprecedented is true in a strictly legal sense. But there is nothing more to it. Parliament was well within its right to do so for there is no constitutional limitation
MYTHS GALORE
Over time, this led to a number of myths being created. One was that Kashmir was ‘distinct’ or even ‘separate’ and that ‘India’ was out to undo its special status. The reality is otherwise. Any Indian law explicitly states that it is not applicable to the state of Jammu and Kashmir, unless special provisions are made to extend it there.
In doing all this, the Constitutional Order was hurt. For one, Article 370 is the only article in the Constitution where the President is bestowed with extraordinary legislative power, something unimaginable in any other modern constitution based on the separation of powers between the executive, the legislature and the judiciary. Ordinarily, laws made for the country are debated threadbare in Parliament before they are enacted. Something similar happens in the case of laws passed by state Assemblies for the states. Under Article 370, Parliament had no such role: the President could, and did, simply extend a law to Kashmir with the flick of his pen. This also damaged the idea of separation of powers that freedom fighters had championed during the British colonial era.
BJP supporters celebrate the repealing of Article 370, in Jammu, August 5, 2019 (Photo: AP)
At another level, a different myth was bred by others. This was that Article 370 could not be repealed by using the President’s power to do so. This was based on a reading of Clause 3 of the Article, which stated that the President could not issue such a notification before securing the recommendation of the Constituent Assembly of Jammu and Kashmir. This assembly framed a separate constitution for the state and existed between 1952 and 1957. Clearly such a recommendation could not be secured in 2019, more than 60 years after that body had ceased to exist. But as the proceedings in Parliament from Monday onward showed, this line of reasoning was just a myth. The complicated legislative proceedings in Parliament were necessitated by that single line in Article 370.
The trouble with such myths is that they lead to sterile political ends. Consider the theory that Article 370 was a permanent feature of the Indian Constitution. Any modern constitution, let alone the Indian one, is based on an understanding that no part of the founding document is immune from changes desired by succeeding generations of citizens and their representatives in a legislature. To do so would be to turn a constitution into a theological text, beyond the reach of humans. History shows this to be untrue. In India, the 42nd Amendment to the Constitution literally re-wrote entire swathes of the document crafted in 1949. This was undone by the 44th Amendment with some important exceptions. Similarly, since its inception in 1950, the Indian Constitution has been amended 103 times making it amply clear that it is a living document.
The truth is that unlike many other states, J&K historically did not enjoy geographic and political unity among its constituents. Its foundation by the Treaty of Amritsar in 1846 only added a part of what was later to be called Jammu and Kashmir state. The diverse regions were home to different ethnic groups
Interestingly, the ruckus over the bifurcation of the state follows a similar mythology. The claim that conversion of Jammu and Kashmir into a Union Territory (UT) is unprecedented is true in a strictly legal sense. But there is nothing more to it. Parliament was well within its right to do so for there is no constitutional limitation that holds the legislature’s hand in this respect. Historically, too, the unity of Jammu and Kashmir is a myth. The truth is that unlike many other Indian states, Jammu and Kashmir historically did not enjoy geographic and political unity among its constituent units. The foundation of the state by the Treaty of Amritsar in 1846 only added a part of what was later to be called Jammu and Kashmir State. Ladakh, Gilgit, Baltistan, Chitral, Hunza and Poonch were all added at different times to the state. These diverse regions were home to different ethnic groups and cultural settings.
The state forged by war and treaty simply did not get enough time for its constituent units to blend together organically. Geographic barriers did the rest. Long after Maharaja Hari Singh left the stage, people from different parts—Jammu, Ladakh and Kashmir proper—continued to jostle for privileges and rights with each other. In the din around the alleged loss of autonomy of the state, another debate—this time on regional autonomy within the state—was lost. The people of Jammu and Ladakh have for long wanted some ‘space’ from Kashmir. The speech of Jamyang Tsering Namgyal, the Member of Parliament from Ladakh on Tuesday, August 6th, only made manifest what was latent for a very long time. So, when Home Minister Amit Shah introduced the Jammu and Kashmir Reorganisation Bill in the Rajya Sabha on Monday, his statement of reasons for the Bill that “The Ladakh Division of the State of Jammu and Kashmir has a large area but is sparsely populated with a very difficult terrain. There has been a long pending demand of people of Ladakh, to give it the status of a Union Territory to enable them to realise their aspirations,’ was pretty much on the mark. Military historian and former cold warrior Edward Luttwak argues that historically Ladakh is much different from the rest of Kashmir, backing the new Government move.
With the end of Article 370, the structural features that bred a psychology of separatism will also go away. That may take time but it will happen.