COMMUNITY OUTREACH FOR MARITIME SECURITY IN INDIA: NEED FOR A CONTEMPORARY APPROACH

Introduction                                                  

On 26 November 2020, seven fishermen on board a sinking boat were rescued off the Maharashtra coast after fishermen from a nearby boat alerted the owner as well as the Maharashtra Coastal Police through a satellite-based communication system.[1]  On 05 January 2021, a student helped rescue officials in locating four fishermen marooned at sea off the coast of Thrissur using a drone.[2]  Earlier, in 2015, a naval pilot was rescued at sea by fishermen off Goa; the fishermen also alerted the navy through the coastal security toll-free number.[3]  In addition, the coastal community has also reported unknownand suspicious objects washed ashore to the coastal police for further investigation.[4]  The community—whether on land or at sea—is integral to the wider policing and security framework, and as the above examples elucidate could also be the first responders at sea.

Conceptually, the maritime security community comprises all users of the sea, whatever be their purpose.[5]  In addition, this community also includes the coastal populace.  Engagement with the maritime security community not only contributes to enhancing security awareness amongst the community, but also in crime prevention, facilitating quick responses, and in developing Maritime Domain Awareness (MDA).[6]

The Maritime Security Sector Reform Guide—an analytical tool designed to map and assess the maritime sector—lists ‘maritime agency outreach and stakeholder coordination’ as one of the sub-functions of maritime governance.[7]  This sub-function includes dissemination of information to those affected by maritime security issues; the capability to communicate with the public is one of the prerequisites required to execute this sub-function.[8]

In India, the need to integrate the community into the maritime security framework was realised in the 1990s and since then the fishing and coastal communities have been progressively integrated.  The ways and means for such engagements have evolved and are now institutionalised primarily through regular interaction programmes, toll free numbers, and by conducting drills and exercises.  The scope of interactions has also been progressively expanded beyond security to include issues affecting human security.  This paper examines the models for community-engagement in India, as also in Malaysia and the US, and suggests measures to strengthen community-engagement for maritime security in India. 

The Indian Model 

The coastal and fishing communities are considered to be amongst the core strengths of the coastal security construct in India.[9]  In July 1999, the Indian Navy along with the Maharashtra Police implemented a community initiative, the Sagar Rakshak Dal, in 263 villages.  This initiative was based on the requirement for greater coastal surveillance, and was perhaps the first major initiative towards integrating the community for maritime and coastal security.

In 2001, a Report of the Group of Ministers on National Security underscored the importance of village volunteer forces and recommended measures that could be taken to strengthen vigilance in border areas.[10]  Specifically, in the maritime context, the report recommended the setting-up of fishermen watch groups in all coastal states.[11]  Over the years the fishing community, including their leaders, have also begun to recognise the important role of the community in coastal and maritime security.[12]

Subsequent to the Mumbai attacks on 26 November 2008, two of the major thrust areas for community-engagement were the establishment of a dedicated Toll Free Number 1093 for coastal security (in addition the Search and Rescue Toll Free Number 1554) and Community Interaction Programmes (CIPs).  In addition, community members have also been engaged in coastal security duties as Special Police Officers or as Marine Home Guards.

As per the Ministry of Home Affairs Annual Report 2018-19, CIPs are undertaken to enhance safety awareness, to undertake security sensitisation, and to develop fishermen into ‘eyes and ears’ for intelligence gathering.[13]  These interactions are undertaken by the Indian Navy, Coast Guard, as well as Coastal Police and Fisheries Department of respective states.  Depending on the location, the participation varies between about 25-60 fishermen.[14]

During CIPs, the community is sensitised about various aspects of safety and security at sea, such as the carriage and use of life-saving equipment, the use of Distress Alert Transponders (DAT), first aid, details of toll free phone numbers/emergency contact numbers, reporting procedures, and other issues which may be locally relevant.[15]  In addition to the safety and security focus, CIPs have also been undertaken to raise awareness about precautions during the COVID-19 pandemic and to sensitise coastal communities on cyclone precautions, environmental protection, etc.[16]

In 2014, a Parliamentary Committee, considering the important role of fishermen in coastal security, recommended further evolution of this engagement on the lines of the Civil Defence and the formulation of a national scheme to enhance awareness amongst fishers, along with necessary budgetary support.[17]  The committee also highlighted the need for the use of the regional languages in interactions as also distribution of relevant literature.[18]

Earlier this year, the Prime Minister launched the PRADHAN MANTRI MATSAYA SAMPADA YOJANA (PMMSY), which is a Rs 20,050 crore programme for sustainable fisheries development.  The programme facilitates central funding for activities such as training and awareness of fishers and could possibly be utilised for enhancing safety and security awareness amongst the fishing community.[19]

The US Model 

The AMERICA WATERWAY WATCH (AWW)[20] is a national maritime homeland security outreach and awareness programme designed to encourage members of the maritime community—including the maritime and recreational boating industries and the boating public— to report suspicious activity.[21]  The programme is premised on the fact that community engagement is essential for the prevention of criminal activities at sea, or along the coast, as mariners can easily discern activities which do not conform to the normal pattern-of-life.[22]

The programme has its origins in the terrorist attacks on the US on 11 September 2001.[23]

The initial outreach efforts—following a similar trajectory as in India— were undertaken at the local level.  However, the need for a national programme to provide support and policy direction led to the institutionalisation of the AWW in 2005.[24]  The programme, which is locally focused, but nationally connected, aims to help in preventing acts of terrorism and other illegal activities.[25] Essentially, the national programme complements local community outreach initiatives.

The objectives of the programme include: stakeholder education; development and distribution of publicity material; facilitation of information flow; and, establishing partnerships with other governmental agencies and non-governmental organisations.[26]  Inter alia the programme establishes roles and responsibilities, processes for reporting and processing of information, and also caters for funding, training, and distribution of educational material.[27]  The programme has a distinctive logo, and publicity material are appropriately branded with the logo for ease of recognition (and association).

The programme also has a dedicated web page with requisite information (and downloads) for the community.  The website includes essential information to guide the community, such as what constitutes ‘suspicious activities’, related reporting procedures, emergency contact details, basic security measures, etc.[28]  The programme is not based on formal membership, anyone or any agency can partner with the AWW simply by copying and pasting a widget onto their website.[29]

Empirically, a study from 2010-13 found that marinas that adopted the AWW witnessed a decline in crime, and those that did not witnessed an increase. This pertained to crimes against people, property, and watercraft.[30]  In marinas that adopted the AWW programme, crimes against people reduced from five to zero; crimes against property reduced from 80 to three; and crimes against watercraft from 29 to 2. On the other hand, in marinas that did not adopt the programme, crimes against people rose from three to six, against property from 45 to 88, and against watercraft from 4 to 13. The study concluded that the AWW contribute to reduction of crime and prevention of terrorism.[31]  The study, albeit with some limitations, validates the concept of community-engagement for security. 

The Malaysian Model 

In Malaysia, the Maritime Community Security and Safety Awareness mobile application [K3M App] conceptualised by the Royal Malaysian Navy (RMN) and developed jointly by the RMN with Telecom Malaysia, facilitates reporting and assistance requests by the community to operations centres ashore.  The initiative was perhaps taken to combat increasing maritime crimes in adjoining waters. The mobile app supports multiple languages and includes value-added services such as weather forecast, tide tables, directory of important contacts, security and safety advisories, and social media connectivity.[32]

Notably, in the states of Karnataka, Kerala, and in Tamil Nadu mobile apps have been developed with the primary objective of monitoring of fishing boat movements.  Considering the importance of the digital medium, police organisations across the country have developed mobile apps to connect with the community and to disseminate information.[33]  The Bureau of Police Research and Development (BPR&D), Ministry of Home Affairs, has also issued guidelines for police mobile apps.

Analysis and Suggestions 

While the ends of all the three approaches discussed above are fundamentally similar, the ways and means to achieve the ends have been different.  Notably, each of the approaches was developed in response to events in respective countries.  From an Indian perspective, some of the key issues are: first, current efforts at community-engagement have largely been focused only on the fishing and coastal communities and not so much on the wider security community, which comprises all users of the sea; second, the present approach to community-engagement such as through the CIP has limited penetration;[34] third, the limited penetration of physical CIPs this year has been further accentuated by the COVID-19 pandemic;[35] fourth, there is scope for leveraging the internet, social media, and mobile telephony for widening community-engagement; and finally, a national approach could provide support and direction to this effort.

The Indian Maritime Security Strategy (2015) highlights the need for nurturing the community and states that “measures to involve, sensitise and incentivise the coastal community to contribute to the coastal security construct will remain a focus area.”  While the present time-tested efforts need to be strengthened and consolidated, some suggestions for a more contemporary approach include:[36]

• Focused engagements with community leaders—key leader engagements—who can exercise considerable heft over the community.
• Formulation and wide availability of standard documentation including in regional languages and in soft copies.
• Preparation and distribution of publicity material, such as pamphlets, posters, stickers, etc.
• Expanding outreach and establishing partnerships with the wider maritime community, including shipping, ports, offshore sector, leisure and tourism industry, research community, environmental agencies etc., including online partnerships through web-based linkages.
• Expanding outreach to other community-based bodies in coastal areas, such as Civil Defence, Home Guards, National Cadet Corps, Nehru Yuva Kendra Sangathan, etc, and convergence with schemes in the maritime sector under the SKILL INDIA programme.[37]
• Leveraging the internet and social media, and development of mobile applications to facilitate wider information dissemination and information exchange between security agencies and the community in line with the DIGITAL INDIA programme.[38]
• Promotion of online engagements as an alternative to physical engagements.
• Since MDA centres also depend on multiple sources for generating MDA and also facilitate information sharing, expanding and strengthening of linkages of such centres—such as the proposed National MDA Centre—with the wider maritime security community.[39]
• Development of a national approach to community-engagement with necessary funding. 

Conclusion 

The important role of the wider maritime security community in maritime security is indisputable.  Consequently, the maritime security community is considered an integral component of the maritime security construct.[40]  However, there are different approaches for community-engagement.  In India, over the past twenty years the engagement with the community has been expanded and consolidated, particularly after the Mumbai attacks (26/11). While security was the principal reason for establishing these linkages, the scope of these engagements has progressively been expanded. However, there are certain limitations within the present model.

With increasing proliferation of the internet and mobile telephony, developments in communication technology (including satellite communication), and with greater comfort levels of the working population with the digital medium, there is a need for more contemporary approaches for community outreach.  Consequently, in line with the Government’s focus on a digitally empowered society, present efforts could be complemented by initiatives through the digital medium.  As such, during the ongoing pandemic there has been an unprecedented rise in the use of online resources to overcome challenges arising from safety-related restrictions (and concerns).While a local approach for engagement is fundamental to the concept, a national programme, as has been recommended by a Parliamentary Committee in 2014, could provide the necessary support and oversight to local efforts.[41]  In short, further widening and deepening engagements with the community through contemporary approaches could yield rich dividends.

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About the Author: 

Captain Himadri Das is a serving Indian Naval Officer and is presently a Research Fellow at the National Maritime Foundation (NMF).  The views expressed are those of the author and do not reflect the official position of the Government of India or the Indian Navy.  He can be reached at csmda.nmf@gmail.com.

Endnotes:

[1] Special Correspondent, “Technology comes to the aid of seven fishermen onboard sinking vessel”, The Hindu,      03 December 2020.  https://www.thehindu.com/news/cities/Mangalore/technology-comes-to-the-aid-of-seven-fishermen-onboard-sinking-vessel/article33235296.ece

[2] Ramesh Babu, “Armed with drone, 19-year-old rescues 4 drowning fishermen off Kerala coast” Hindustan Times,   06 January 2020.  https://www.hindustantimes.com/india-news/armed-with-drone-19-year-old-rescues-4-drowning-fishermen-off-kerala-coast/story-nvCNgclVlaxfuuG4Q4HuPP.html

[3] Rahul Singh, “Navy loses plane at sea; pilot saved by fishermen, two missing”, Hindustan Times, 07 March 2015.

https://www.hindustantimes.com/india/navy-loses-plane-at-sea-pilot-saved-by-fishermen-two-missing/story-sFHRfJdACvarFzN0PWW5lJ.html

[4] Deccan Herald News Service, “Strange object washes ashore in Shiroor”, Deccan Herald, 22 September 2020. https://www.deccanherald.com/state/mangaluru/strange-object-washes-ashore-in-shiroor-891569.html

[5] Christian Bueger and Timothy Edmunds, Mastering Maritime Security: Reflexive Capacity Building and the Western Indian Ocean Experience (Safe Seas (Cardiff University and University of Bristol), 2018), 16. DOI: 10.5281/zenodo.1157961.

[6] Bueger and Edmunds, Mastering Maritime Security: Reflexive Capacity Building and the Western Indian Ocean Experience, 16.

[7] US Department of State, Maritime Security Sector Reform (US Department of State, 2010), 05. https://2009-2017.state.gov/documents/organization/154082.pdf, last accessed on 26 January 2021.

[8] US Department of State, Maritime Security Sector Reform, 22.

[9] Indian Navy, Indian Maritime Security Strategy (New Delhi: Integrated Headquarters of Ministry of Defence (Navy), 2015), 115.

[10] Group of Ministers, Report of the Group of Ministers on National Security(New Delhi: 2001), 95. https://www.vifindia.org/sites/default/files/GoM%20Report%20on%20National%20Security.pdf

[11]Group of Ministers, Report of the Group of Ministers on National Security, 72.

[12] Bella Jaisinghani, “Fishermen lose champion of cause as union leader Damodar Tandel”, The Times of India,          04 December 2020. https://timesofindia.indiatimes.com/city/mumbai/fishermen-lose-champion-of-cause-as-union-leader-damodar-tandel-dies-at-72/articleshow/79569391.cms

[13] Ministry of Home Affairs, Annual Report 2018-19 (New Delhi: n.d.), 47. https://www.mha.gov.in/sites/default/files/AnnualReport_English_01102019.pdf, last accessed on 26 January 2021.

[14] Department-Related Parliamentary Standing Committee on Home Affairs, 177^th Report on Coastal Security Scheme (New Delhi: Rajya Sabha Secretariat, 2014), 33. http://164.100.47.5/newcommittee/reports/EnglishCommittees/Committee%20on%20Home%20Affairs/177.pdf, last accessed on 26 January 2021.

[15] Das, Coastal Security: Policy Imperatives for India, 139.

[16] Ministry of Defence, “Indian Coast Guard Efforts for Cyclone ‘FANI’”, Press Information Bureau, 01 May 2019.  https://pib.gov.in/Pressreleaseshare.aspx?PRID=1571411; Ministry of Defence, “CG to embark on voluntary discarding of Plastic Campaign”, 01 October 2018. https://pib.gov.in/PressReleseDetail.aspx?PRID=1548106

[17] Department-Related Parliamentary Standing Committee on Home Affairs, 177^th Report on Coastal Security Scheme, 33-35.

[18] Department-Related Parliamentary Standing Committee on Home Affairs, 177^th Report on Coastal Security Scheme, 32.

[19] Department of Fisheries, Pradhan Mantri Matsya Sampada Yojana (New Delhi: Department of Fisheries, 2020), 25. http://dof.gov.in/sites/default/files/2020-07/Book_PMMSY_Framework_0.pdf, last accessed on 26 January 2021.

[20] US Coast Guard, “Commandant Instruction 16618.8: Implementation of America’s Waterway Watch and Local Maritime Homeland Security Outreach and Awareness Programs”; accessed 15 December 2020, 1. https://media.defense.gov/2017/Mar/16/2001717305/-1/-1/0/CI_16618_8.PDF

[21] US Coast Guard, “Commandant Instruction 16618.8: Implementation of America’s Waterway Watch and Local Maritime Homeland Security Outreach and Awareness Programs”, 1.

[22] US Coast Guard, “America’s Waterway Watch,” accessed 15 December 2020,  https://www.dco.uscg.mil/Our-Organization/Assistant-Commandant-for-Prevention-Policy-CG-5P/Inspections-Compliance-CG-5PC-/Port-and-Facility-Compliance-CG-FAC/Americas-Waterway-Watch/; US Coast Guard,  “Why do We Need America’s Waterway Watch?,” accessed 15 December 2020,  https://www.dco.uscg.mil/Our-Organization/Assistant-Commandant-for-Prevention-Policy-CG-5P/Inspections-Compliance-CG-5PC-/Port-and-Facility-Compliance-CG-FAC/Americas-Waterway-Watch/About-AWW/

[23] US Coast Guard, “Commandant Instruction 16618.8: Implementation of America’s Waterway Watch and Local Maritime Homeland Security Outreach and Awareness Programs”, 2.

[24] US Coast Guard, “Commandant Instruction 16618.8: Implementation of America’s Waterway Watch and Local Maritime Homeland Security Outreach and Awareness Programs”, 2.

[25] US Coast Guard, “Commandant Instruction 16618.8: Implementation of America’s Waterway Watch and Local Maritime Homeland Security Outreach and Awareness Programs”, 2-3.

[26] US Coast Guard, “Commandant Instruction 16618.8: Implementation of America’s Waterway Watch and Local Maritime Homeland Security Outreach and Awareness Programs”, 4.

[27] US Coast Guard, “Commandant Instruction 16618.8: Implementation of America’s Waterway Watch and Local Maritime Homeland Security Outreach and Awareness Programs”, 6-13.

[28] US Coast Guard, “Where Should I Look for ‘Suspicious Activity’?”, accessed 15 December 2020,  https://www.dco.uscg.mil/Our-Organization/Assistant-Commandant-for-Prevention-Policy-CG-5P/Inspections-Compliance-CG-5PC-/Port-and-Facility-Compliance-CG-FAC/Americas-Waterway-Watch/Suspicious-Activity/; Daniel J Benny, Maritime Security: Protection of Marinas, Ports, Small Watercraft, Yachts and Ships (Florida: CRC Press, 2016), 192-93.

[29] US Coast Guard, “Partner Online With AWW”, accessed 15 December 2020,  https://www.dco.uscg.mil/Our-Organization/Assistant-Commandant-for-Prevention-Policy-CG-5P/Inspections-Compliance-CG-5PC-/Port-and-Facility-Compliance-CG-FAC/Americas-Waterway-Watch/Partnership/

[30] Daniel J Benny, Maritime Security: Protection of Marinas, Ports, Small Watercraft, Yachts and Ships, 197.

[31] Daniel J Benny, Maritime Security: Protection of Marinas, Ports, Small Watercraft, Yachts and Ships, 197.

[32] “K3M”, Google Play, accessed 15 December 2020,https://play.google.com/store/apps/details?id=com.ionicframework.rakam657960&hl=en&gl=US

[33] “Police Apps and Websites: Issues of Standardisation,” Bureau of Police Research and Development (BPR&D), https://bprd.nic.in/WriteReadData/CMS/Police%20Apps%20and%20Websites.pdf, last accessed on 26 January 2021.

[34] While the Coast Guard alone has conducted over 8000 CIPs, the fishers’ population as per the last census is about 40 lakh.

[35] Ministry of Defence, “Pre-Emptive Measures by ICG During Cyclone”, Press Information Bureau,                    21 September 2020. https://www.pib.nic.in/PressReleasePage.aspx?PRID=1657272

[36] See also: Das, Coastal Security: Policy Imperatives for India (New Delhi: National Maritime Foundation, 2019), 231-35.

[37] See also: Himadri Das, “Expansion of the National Cadet Corps in Coastal Districts: Strengthening Local Capacities for Maritime Security,” 06 October 2020, NMF Website. https://maritimeindia.org/wp-content/uploads/2020/10/EXPANSION-OF-THE-NATIONAL-CADET-CORPS-IN-COASTAL-DISTRICTS-CAPT-HIMADRI-DAS.pdf, last accessed on 26 January 2021.

[38] DIGITAL INDIA is a flagship programme of the Government of India with a vision to transform India into a digitally empowered society and knowledge economy. The approach to Digital India envisages leveraging the common and support Information and Communication Technology (ICT) Infrastructure established by Government of India. Source: https://www.digitalindia.gov.in/

[39] Bueger and Edmunds, Mastering Maritime Security: Reflexive Capacity Building and the Western Indian Ocean Experience, 16.

[40] Bueger and Edmunds, Mastering Maritime Security: Reflexive Capacity Building and the Western Indian Ocean Experience, 11.

[41] Department-Related Parliamentary Standing Committee on Home Affairs, 177^th Report on Coastal Security Scheme, 32.