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Chief of Defence Staff: The purpose, emerging threat
dimensions, what the stars foretell and some
recommendations
Administrative issues should be best left to respective Service Chiefs and the MoD to handle as before, while the CDS must
concentrate his focus and energy on macro considerations to facilitate the long-term perspectives. There is a need to
develop a better understanding and deepen trust amongst Government functionaries so as to better employ ‘whole of
Government approach’. The CDS is indeed well placed to achieve all this.

18 February, 2020

Lt Gen Abhay Krishna

 3708
Gen Bipin Rawat took charge as India’s rst Chief of Defence Staff on January 1, 2020.

Post-independence the idea of creating the post of Chief of Defence Staff (CDS) was actually
mooted rst time by Late General K V Krishna Rao in June 1982. But somehow, thereafter the idea
continued to remain on the back burner till after the Kargil War in 1999 when the necessity of
creation of this post was once again strongly felt. It was under the guidance of the then Prime
Minister Atal Bihari Vajpayee that a Task Force consisting of a Group of Ministers was constituted
to study the recommendations proposed to the Cabinet Committee on Security (CCS) for creating
a post of CDS. However, with the change of Government at the centre, the matter once again
went on the back burner only to be followed up by Naresh Chandra Committee in the year 2011
which also suggested the creation of the post of CDS, but a watered-down version.

It is believed that the bureaucratic turf protection, certain political misgivings and inter-service
mistrust perhaps created so much friction that the proposal to create the post of CDS continued
to remain only on paper. However, once again with a change of Government at the centre, the
Shekatkar Committee was constituted which submitted its report in 2016 recommending the
creation of the post of CDS.

Finally, after years of wait, the Government appointed the much-awaited CDS on 01 January
2020 as a major step forward towards ensuring complete integration of the Indian Armed Forces
and provide better direction for higher defence management. The creation of the post of CDS
may be described as a ‘historic step’, but the seeds of the same had already been sown by the NDA
Government during their earlier tenure. Demonstrating their foresightedness and resolve, they
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had already begun the process of tri-service integration by establishing the ‘tri-service theatre
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Andaman & Nicobar Command (ANC) and Headquarters Integrated Defence Staff (HQ IDS) in the
year 2001. This was followed up by raising of Strategic Force Command
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year 2018 by creating the Space & Cyber Agency and Special Operations Divisions under the
Chairman Chief of Staff Committee.

Purpose and Role of CDS

The CDS has a vast charter to perform to include promoting jointness in defence procurement,
training and staf ng for the services through joint planning and integration of their
requirements, facilitate restructuring of military commands for optimal utilisation of resources
by bringing about jointness in operations, establishment of theatre commands and promote use
of indigenous equipment by the services. Though the CDS will not exercise any military
command including over the three Service Chiefs, he is, however, vested with the authority to
provide directives to them on matters related to tri-service and procurement.

While the CDS will continue to execute the functions of Chairman Chief of Staff Committee to
include management of tri-service organisations, Military Advisor to Nuclear Command
Authority and Member of Defence Acquisition Council and Defence Planning Committee, a
separate Department of Military Affairs (DMA) has been created within the Ministry of Defence
(MoD) headed by the CDS as a Secretary who will function as the Principal Military Advisor to the
Raksha Mantri on tri-service matters. The DMA is the fth department of MoD whose funding
will continue to be coordinated by the Defence Secretary, who will also continue to be
responsible for the defence of India.

The Emerging Threat Dimension

Unfolding Global Security Scenario

With the discovery of oil in the 19th Century and the resultant rapid growth which followed,
industrial and commercial rivalry thus became the seed of war post world war II. After the
collapse of the erstwhile Soviet Union,  the world witnessed the emergence of a number of
ashpoints and regime changes in countries such as  Afghanistan, Iraq, Syria, Lebanon, Libya,
Sudan, Somalia to name a few.

To ensure control and domination over the energy market the world over and maintain the
hegemony of the PetroDollar which constitutes 2/3rd of the global economy, the United States of
America (USA) has established 800 major military bases spread over 74 countries as against
France and Russia with 13 and Nine bases respectively. India has only one military base located
at Tajikistan.

With the Russian economy bouncing back in 2016, the Western and Eastern power blocs are once
again clearly seen emerging and jostling to safeguard their own trade and energy security
interests. The current situation in the Middle East speaks for itself. The Indian Ocean Region,
therefore, assumes a strategic signi cance as major sea trade routes pass through it. The Strait of
Malacca is an important shipping lane in the world, linking the Indian and Paci c Ocean.
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Similarly, for the petroleum exporting Gulf region, the Strait of Hormuz is the only sea passage
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to the open ocean. Roughly over 40 percent of the world’s sea-borne oil shipments pass through
the Strait every day making it the world’s most strategically
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In addition, Mandab Strait or Bab el-Mandab, situated between Yemen and Djibouti at the Horn
of Africa, provides the strategic link between the Indian Ocean and the Mediterranean Sea via
the Red Sea and the Suez Canal. The Lombok Strait between the Indonesian Island of Bali and
Lombok, the Palk Strait between India and Sri Lanka are secondary choke points in the Indian
Ocean Region. Over 70 percent by volume of international trade in goods and energy
commodities like oil, coal and natural gas is transported by sea through the Indian Ocean Region.
Trade and energy dominance by power blocs is largely dependent on reliable and secure oil and
gas supply. Since the bulk of it is transported through the Indian Ocean Region, any blockage will
lead to threatening the global or the regional economy.

The overpowering security concerns of major world powers for protecting their trade route
through the Indian Ocean Region has, therefore, resulted in enhancing their military presence as
well as forging of cooperative developments and agreements with several of the littorals to
promote, support and sustain military operations in the Indian Ocean Region. It is now an
accepted fact that all major powers have an ambient Naval presence from the Strait of Hormuz to
the Strait of Malacca.  Can India therefore, continue any longer in military isolation in the
backdrop of economic globalisation and great power rivalry?

The Northern Front Threat

Over past two decades, the presence of China, our presumed ‘No 1 Adversary’, has also
signi cantly increased in the Indian Ocean Region, generally referred to as ‘string of pearls’.
However, there is yet no compelling evidence of Chinese Navy engaging overtly in aggressive
military activities. But it can’t be ruled out in future to come. While China has reorganised itself
into theatre commands duly supplemented by Special Operations, Aviation, Air Assault,
Airborne and Marine Brigades along with other force multipliers including Artillery, Air Defence
and Engineers integrated till combined Arms Battalion level, it has also signi cantly enhanced
its nuclear missile capability with DF-26.

China has also reportedly test- red the S-400 long-range SAM system and has developed HQ-19
with ballistic missile defence capability. Our main adversary has, therefore, reorganised and
developed its strength much beyond the con nes of our ‘Northern Borders’, to include long-
range strikes by a credible array of missiles in addition to emphasis on ‘non-contact warfare’
which relies on a credible plan in the electronic, cyber and space domains with emphasis on
winning wars under informatised condition and overwhelming superiority of force multipliers. 
China is striving to modernise the PLA by 2035 and create a world-class force by 2049. Currently,
China is building its Air Force and Navy with the capability of long-distance operations with
heightened operational tempo. On our  ‘Western Front’  the Line of Control continues to burn
and China remains the main military supplier.

What Do We Need to Do?

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As far as the Northern Front Threat is concerned, besides infrastructure development, it is

encouraging to note from the multiple media interviews given by the CDS that India will now
begin to look at giving the much-awaited due impetus to her Strategic Forces, Space and Cyber
capability, Command and Control capability shifting focus from manpower-heavy army to high-
tech, modular, responsive ground forces capable of three-dimensional manoeuvre, long-range
weapons of precision strike capability duly supported by special operations forces under the
command of a combined military leadership ensuring jointness in planning and execution. But
is that enough to deal with China?

China’s real vulnerability lies on its Eastern Front which constitutes almost 91 percent of its
population covering 33 percent of the Chinese landmass. All industries, business and economic
hub centres are spread all along the Eastern Coast with Pearl River Delta itself constituting
1/3rdof China’s export. From the Northern Border, the nearest signi cant economic target for
India on the Chinese soil is 2800 km away which is well beyond reach by any measure today.

India needs to grow out of its continentalist mindset and expand its reach not only in the Indian
Ocean Region but also close to China’s East Coast to be a meaningful counter-threat. India thus
needs to grow beyond the xation of Western and Northern land border threat perception
syndrome and instead look to reorganise herself into maritime expeditionary force as also create
few military bases both in the Indian Ocean Region and the Indo-Paci c Region in collaboration
with friendly countries.

The Government’s Bold Initiative

No sooner the current Government when came to power in 2014, Hon’ble Prime Minister Shri
Narender Modi chose to visit Seychelles and Mauritius where he unequivocally said,” Delhi will
work to ensure safe, secure and stable Indian Ocean Region that delivers us to the shores of
prosperity.” This undoubtedly signalled India’s shift towards Indian Ocean littorals being
accorded priority. The Prime Minister went ahead and announced several maritime security-
related projects in Seychelles as part of India’s efforts to build maritime domain awareness
network across the Indian Ocean Region covering Mauritius and Sri Lanka too. He also made a
commitment to build maritime capacity and infrastructure in both Assumption Island of
Seychelles and Aga Lega in Mauritius. Later, India’s intent about taking on greater
responsibilities for securing the Indian Ocean and for promoting regional mechanism for
collective security was explicitly conveyed by appointing an ex Indian Army Chief as Indian High
Commissioner of Seychelles.

India has also constructed Chabahar port in Iran and acquired an airport next to Hambantota
port in Sri Lanka. India has already signalled her intent of a bold foreign policy in the Indian
Ocean Region determined to take geographical advantage of the peninsular India and littoral as
also by signalling to both the US and China to engage on maritime security issues. But now the
question is how to take it forward. The answer lies in the subsequent actions taken towards
achieving this goal.

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Government policy or intent, where the implementation extends beyond the land borders, needs
a strong push through a combination of both economic and militaryALLOW
NO THANKS might. To give requisite
strength to all the initiatives and intent in respect of maritime security shown by the
Government, the Indian Armed Forces need to expand their footprint not only in the con nes of
the Indian Ocean Region; but also close to East and South China sea. At this juncture, therefore,
the appointment of CDS to bring about the much-awaited transformation of the Indian Armed
Forces enabling it to operate overseas beyond the subcontinent is the most signi cant step for
which the Government must be truly complimented. However, proof of the pudding lies in
eating. Is the current CDS really empowered, designed, capable and envisioned to achieve this?

The First Stepping Stone – The Budget

It was not surprising to see that in the current Budget, there was only a marginal increase in the
capital outlay for Defence for the year 2020-21. Our economy currently pitched at $2.69 trillion is
still to traverse a long distance to get close to $12.24 trillion economy of our main adversary
China and $19.39 trillion economy of USA. In view of the committed liabilities from the previous
years, the current allocation, therefore, will fall short to meet the requirements of the Indian
Armed Forces. The meagre allocation will impede major acquisitions planned for the three
services. However, notwithstanding the current allocation and prevailing state of the Indian
economy, the Government’s push towards indigenous defence production to include
diversifying and developing signi cant competencies with modern plant and machinery in
collaboration with major business houses from across the globe, will turn India from world’
biggest defence equipment importer to a key aerospace and defence manufacturing hub in the
coming decade.

With ‘Make in India’ taking deeper routes as envisioned by the Hon’ble Prime Minister, India’s
march towards $5 trillion economy has thus begun. This belief was adequately reinforced by the
Hon’ble Raksha Mantri, Shri Rajnath Singh, when commenting on the Budget he said, “The rst
Budget of the new decade presented today by Finance Minister Nirmala Sitharaman gives an
outline of a new and con dent India. It is a promising, proactive and progressive budget which
will make India healthy and wealthy in the coming years.”

The Need of the Hour

It is, therefore, clear that under the present prevailing economic condition, no major acquisition
for and reforms of the Indian Armed Forces can be undertaken in a tearing hurry. Under the
prevailing budgetary constraints and its likely continuance for few more years and considering
the Nation’s long-term strategic goal of becoming a Regional Power, the CDS may, therefore, rst
clearly set targets to be achieved harmonising the available resources with realistic timelines.

Look Beyond the Horizon

In view of the aforesaid, we need to rst clear our understanding of the emerging threat
impeding India’s march towards building a stronger economy and becoming a Regional Power.
PLA’s development in the eld of Cyber, EW and Space embedded in unmanned systems, has
deeper reach much beyond the land borders claiming capable of rendering our systems at sea,
air, space and land dysfunctional which cannot be ignored.

To tackle China effectively, India must not only develop the capability to strike   the economic
and business hubs along the China’s East Coast, but also show military presence close to East and
South China Sea in addition to  developing capability in the domain of Cyber, EW and Space to
counter PLA’s growing power inPlease
non-contact warfare.
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As far as the strategic space of the Indian Ocean Region is concerned, the CDS has very rightly
shared his vision and thoughts about PeninsularNO
India during one ofALLOW
THANKS his media interactions in
the recent past. India needs to expand her effective and dominant reach deep into blue waters
much beyond the world sea trade lanes extending from the Strait of Hormuz to the Strait of
Malacca and be capable of protecting not only her own trade and energy security interests, but
also be strong enough to provide logistics support and protection to other trading nations
passing through the Indian Ocean Region.

Pakistan is going through immense internal turmoil and is no military threat to India, though
China remains the main military supplier.  India thus, need not fritter her military power and
resources by waging a full-scale war against the Western neighbour.  Pakistan is only an irritant
which needs to be tackled through their own prevailing contradictions. Disintegrated Pakistan
will neither pose a military threat nor will be in a position to fuel terrorism.

The CDS May Consider

Comprehensive National Security Strategy

To begin with, keeping in mind the Nation’s strategic goal of becoming the Regional Power, a new
War Doctrine needs to be prepared to tackle the emerging threat scenario. The larger roadmap
pertaining to unfolding global security challenges, emerging threat scenario and increasing
military footprints in both the Indian Ocean Region and Indo-Paci c Region should be clearly
spelt out in the said doctrine besides measure to tackle both Western and Northern Border
Threat.

Integration

(a) Before embarking on the creation of Western, Northern Theatre, Air Defence, Peninsular and
Logistics Commands as announced by the CDS recently, a study may be carried out to look into
the CDS models already being followed by the P5 countries. It is always better to learn from
others own rst-hand experience. The study of the existing ve models in the world will help us
to identify a structure truly applicable and relevant to us in the backdrop of leveraging India’s
geographical location advantage vis a vis available resources, economic and security interests to
be protected. It will also help in working out a practical timelines keeping the budgetary
constraints and other connected limitations in view.

(b) Creating a Joint Air Defence Command is considered a little early at this stage. Air Defence
involves not only tactical air space; but also the whole of the air space above that.  While the
Indian Army and the Indian Navy are concerned with the tactical air space, the Air Force takes
care of strategic airspace. Before we proceed, the CDS may consider constituting a team to   study
the existing varying models of countries like USA, China, Russia etc and their functionality.
Thereafter, look at what suits us the best. Meanwhile, it is recommended that we need to rst
focus on integrating control and reporting with a communication network and their
interoperability. Thereafter, creating joint structures for manning should be left with the
respective theatre level.  Placing all Air Defence resources under one Joint Air Defence Command
will invariably result in a con ict of the requirement of Theatre Commanders. Resources of Air
Defence, therefore, should be best left under command of respective Theatre Commanders who
would be the best judge of their own priorities in the prevailing operational scenarios.

(c) Therefore, to begin with, CDS may consider integrating the existing tri service
communication system to include cyber, Space and EW so as to not only get and share real time
intelligence at all levels, but also help coordinate a timely and accurate response. In accordance
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with their interoperability, the maintenance wherewithal to include spares, infrastructure and
other connected assets must also be integrated. NO THANKS ALLOW

(d) Keeping in view our projected involvement in the Indian Ocean Region and the Indo-Paci c
Region, building Carrier Battle Groups, Maritime Strike Aircraft and Amphibious Divisions must
be accorded priority over straight away beginning to create Western Theatre, Northern Theatre,
Joint Air Defence, Peninsular and Logistics Commands. Once these tri service forces become
stable and operational then the process of creating of various Theatre Commands could
commence. The Integrated Battle Groups of the Army is still to take a nal shape and get
operational. Once this concept nds a rm foot then further reforms in terms of reducing a
number of higher formation headquarters within the Army must be thought of  which will not
only reduce multiple layers of command and control but also effectively cut down expenditure
and result in substantial savings.

(e) The CDS may consider working out with the respective Ministries the integration and optimal
employment of Para Military Forces for the defence of the border. Since the insurgency in the
North East is on the wane as also not a single bullet has been red on the Northern borders since
1973, the time is ripe to reconsider the current deployment of the army along the Northern and
Myanmar borders. On the lines of Indian Coast Guard, the ITBP and Assam Ri es may be
considered to be placed under the MoD and be deployed to defend the two borders duly supported
by the SFF, while troops of the Indian Army be pulled out and reorganised to execute tasks
beyond the borders and into blue waters.

(f) Current level of understanding of the operation of sister services is lacking amongst of cers’
fraternity.  To achieve the desired operational ef ciency, there is a need for greater
understanding of the strength and weakness of the three Services. This will be largely achieved if
the cross attachment is undertaken in the middle and higher ranks.

Optimisation

(a) Growth of the Indian Armed Forces over decades, con ned into individual service verticals,
has led to a major de ciency in the planning process, duplication of efforts and sub optimal
utilisation of resources. Duplication of assets in infrastructure and human resources whether in
training or in operational commands, is a huge drag on the defence budget leaving very little for
capital acquisition.   Having created the appointment of CDS, the country de nitely expects a
payoff in the form of leaner, meaner and very effective armed forces that will achieve synergy
through joint training, planning and operations to tackle the emerging threat scenario in the
Asia- Paci c Region.

(b) At present, the immediate priority be accorded to tri service integration of existing resources
to optimise and cut down on wasteful expenditures. This will ensure the commencement of a
seamless integration of the three services at various functional levels without destabilising the
complete structure. Therefore, ensure close cooperation and functioning of the three services
through joint planning of operations, logistics, transport, training, communication, repairs and
maintenance. This will help in building a strong foundation administratively, functionally,
mentally and emotionally at all levels of rank and service to further help embark on creating the
envisioned Theatre Commands in times to come.

(c) Before commencing the raising of a Logistics Command, common weapons, equipment,
transport and other ancillaries used by respective Service be identi ed and the requirement of
their maintenance in terms of infrastructure, man power, technical equipment and expertise be
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assessed. Thereafter integrate their maintenance wherewithal on a common platform
considering the factor of interoperability and ensure provisioning done
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(d) Rising above turf battles and Service-speci c trivial considerations, all three Service Chiefs
must assist the CDS in  streamlining the procurement prioritisation, re ning the archaic
procurement process leading to over stocking, working out realistic stocking norms graduating
from ‘Just in Case’ to ‘Just in Time,’ and reworking out  the current skewed fuel ef ciency norms
leading to surpluses and misuse.

(e) The CDS may also consider constituting teams to look into civil warehousing facilities as also
the prevailing work culture of OFB, DPSUs, Base Workshops, Shipyards and BRDs which have
more often than not, led to time and cost over runs besides the poor quality of repairs and
overhauls.

Review of Revenue Expenditure

All three Service Chiefs must assist the CDS to review fund allocations under various Heads of
the Revenue expenditure of each Service and signi cantly cut down especially building non-
strategic infrastructures and maintenance-related expenditure to the bare minimum. The MoD
needs to give a serious look at the early disposal of surplus civilian manpower with various
depots, workshops, DPSUs and OFBs. It is refreshing to hear CDS talking about the feasibility of
monetising unutilised defence land. Rightfully, therefore, the rationale of continuing to hold on
to several thousand acres of defence land under various categories, lying unutilised since
independence as also the necessity of continuing with the concept of Cantonment Boards and
Indian Defence Estate Services needs a dispassionate relook.

Military Diplomacy

Presently, the crucial aspect of defence diplomacy is being conducted in an ad-hoc manner
without an overarching policy direction from the MoD. It will be ideal if the CDS is made
responsible for all aspects of defence diplomacy with clear policy guidelines from the
Government. The bureaucrats from the MEA need to be integrated so that the complete spectrum
of functioning is attained. The potential of military diplomacy has not been optimally exploited
so far.

HR Issues

Defence of cers in the Department of Military Affairs will have a tenure of maximum two to
three years only which will be inadequate to bridge the chasm in their understanding and
comprehension which in turn will adversely affect their contribution. As a result, there will be a
disconnect in functioning between such of cers and the permanently settled civil service
of cers. This can be overcome by ensuring extended tenures of serving of cers wherever
possible and employing senior retired of cers having domain knowledge on contractual basis.

Summary

In the backdrop of  the  prevailing budget constraints and the same likely to continue for next
few years till we reach the threshold of the projected $5tn economy, we need to tread carefully
with correct priorities, practical timelines and desist from embarking  on large reforms calling
for huge budgetary requirements and eventually leading to disruption and a stalemate.

In fact, it does seem that we are living in a pre-war era. Many of the factors that de ne the times
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we are in today, were present before the two
publishes world wars
an important of the previous century: populism,
article.
nationalism, ethnic and religious con icts, territorial disputes, economic depression and
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The West seems to see us, along with Japan and Australia, as a bulwark for a rising China.
Therefore, we must look into the mirror and assess ourselves honestly if a global con ict breaks
out, where will we stand and how much power can we realistically project beyond our borders.
Our focus on a holistic vision for India as a Regional Power in the context of global power plays
still doesn’t seem clear. The CDS thus, has an enormous task on his hands to galvanise the tri
service military might under the prevailing budgetary constraints and prepare to ght the right
war in multi-disciplinary domains in the times ahead.

Under the present charter of work assigned to Department of Military Affairs, it seems that the
CDS will be compelled to devote a lot of his valuable time in overseeing administrative issues like
promotions, postings, redress of grievances and foreign assignments as also other service-
related trivial administrative and nance matters thus encroaching upon and denting the much
desired singular focus and effort required towards achieving larger goals set for. These
administrative issues should be best left to respective Service Chiefs and the MoD to handle as
before, while the CDS must concentrate his focus and energy on macro considerations to
facilitate the long-term perspectives. There is a need to develop a better understanding and
deepen trust amongst Government functionaries so as to better employ ‘whole of Government
approach’. The CDS is indeed well placed to achieve all this.

(The article has been authored by Lt Gen Abhay Krishna, PVSM, UYSM, AVSM, SM, VSM, (Retd).
Before superannuating on 30 Sep 2019 after nearly 40 long years of service with Indian Army, he
served as General Of cer-Commanding-in-Chief (GOC-in-C), Central Command from 1 October
2018 having taken over the reins Lieutenant General Balwant Singh Negi. He handed over the
command to Lieutenant General Iqroop Singh Ghuman. Prior to that, he has also commanded the
Eastern Command and South Western Command of the Indian Army. During his long service
journey he has served four tenures along Line of ActualControl, two tenures in High Altitude, two
tenures as UN observer, in Mozambique & Rwanda and later as Chief of Staff (UN forces) in
Burundi besides several tenures in the North East in various capacities. He has commanded a
Rashtriya Ri es Battalion both in the North East and in Kashmir valley as well during Kargil
con ict as also an infantry battalion in Sikkim. He has also tenanted the appointment of
Brigadier General Staff 3 Corps, GOC 27 Mountain division (Kalimpong), Chief of Staff (Delhi
area) and GOC III Corps (Dimapur). Besides receiving several distinguished service awards, he is
also a recipient of gallantry award for an act of bravery and gallant action beyond the call of duty
in a hostage crisis during his stint with UN Mission in Mozambique. He has good academic
credentials with two M Phil and one MSc degrees, Post Graduate Diploma In Human Rights,
International Humanitarian and Refugee Laws from Indian Academy of International Law and
Diplomacy, Delhi as also in Information Technology from CDA-C, Pune. At present, he is going
through an International Arbitration Course in dispute resolution mechanism)

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TOPICS CDS Chief Of Defence Sta China India Indian Army Pakistan Recommendation Threat

Lt Gen Abhay Krishna

Lt Gen Abhay Krishna, PVSM, UYSM, AVSM, SM, VSM, (Retd). Former Army Commander South Western
Command, Eastern Command and Central Command.

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cancellation of trains due
to coronavirus lockdown

India lodges strong

protest over desecration
of Buddhist carvings in
PoK’s Gilgit-Baltistan,
asks Pakistan to vacate
illegally occupied
territories

Sweden’s Coronavirus
response hailed by Indian
liberals was flawed,
admits country’s response
in-charge

Supreme court refuses to

entertain a plea seeking
India to be officially
renamed only as ‘Bharat’

The Wire report claims

Tripura govt paid less
amount to students for
mid-day meal scheme,
data shows govt paid 50%
more

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