Académique Documents
Professionnel Documents
Culture Documents
Reassessing Pakistan
Role of Two-Nation Theory
Anand K. Verma
Under the ausPices of the Centre for Policy Research, New Delhi
www. bharat-ra kshak. com First published in lndia by Lancer Publishers & Distributors 56 Gautam Nagar, New Delhi-1 10 049 lancerl @vsnl.com
Printed
at Sona
Contents
Foreword Preface Summary 1. Introduction 2. Germination of Pakistan
Executive
7
11
13 19
34
3.
ldeology
59 79
4.
Forces 5" The Insoluble Equation: Indo-Pak Relations 6. The Cost of Two-Nation Theory
The Other Pillar: The Armed
103
126 146
7.
Out 1947
Appendices
1.
161
201
245 209
4.
UN Resolution - 5 January
1949
Reassessrng Pakistan
5.
6. 7.
8,
214
216 220
224
9.
232
245 269
273
Foreword
Political animosity between India and Pakistan is as old as the creation of Pakistan as a sovereign country by partitioning
of India by the British rulers. There must be something very basic obstructing the movement towards good neighbourly
relations between India and Pakistan all these fifty-three years after partition. The vast majority of the people living in both
these countries want them to resolve their differences at the soonest. The whole world counsels lhe same advice. The US President, Bill Clinton during a visit to the subcontinent in early 2000 had profoundly observed, "This era does not reward people who struggle in vain to redraw borders in blood' lt " rewards people who are partners in commerce and trade
Many people round the world believe that the Kashmir problem is at the heart of the alienation between the two countries. The leaders of the two countries at various points
during these troubled fifty-three years had privaiely agreed to accept a division of the state of Jammu and Kashmir more or
less along the present line of control, but had subsequently been unable to implement such proposals publicly. There are
enough indications from Pakistan's side that India and Pakistan cannot be friendly neighbours even if the Kashmir problem
Reassessrng Pakistan
Pakistan, is on record saying that even if the Kashmir issue were to be resolved, the proxy war would continue. One has, therefore, to look elsewhere to comprehend what is really
lie in the two-nation theory. Plainly put, the two-nation theory is based onihe communal divide originating from the desire of a group to preserve its religious identity and using this as a communal card for continuously seeking political gains. The
communal approach was mainly the product of the nineteenth
century. lts conversion into a political weapon took place in the twentieth century. After partition, Pakistan has frequenfly
used this weapon through the lslamisation and Shariatisation
of the country. Today Pakistan appears to be rapidly moving towards the Talibanisation of the country.
General Musharraf, thus, quite candidly admits that the proxy war against India will not end even after the Kashmir
problem is out of the way. This is so because the virus of communalism will still be alive.
the communal orientation of the Pakistani establishment is the
Foreword
Indo-Pak differences have, therefore, to proceed from a philosophical convergence of bilateral political relations and
Both
Pakistan.
have an interest in the improvement of relations between these two countries. This is a thought-provoking book. lts
purpose will be amply served if it can ignite a new debate on
terni ebonomic development, for launching a war on poverty, unemployment and deprivation of basic human needs of a
Research
Charan D Wadhva
Delhi
Mav 2001
Preface
lndo-Pak relations have defied all attempts at improvement in
years gone by since the partition of British India in 1947. Wars have been fought and peace settlements arrived at, but real peace has always eluded the two so far.
ls there something so fundamental in this that blanks out any vision of a better day?
relationship
media and think tanks often missed out on this essential point. Dr VA Pai Panandikar, then President of the Centre for Policy Research, New Delhi, had become familiar with my views, which were expressed at occasional seminars after my official career had ended. He invited me to become a Visiting Professor at the Centre for Policy Research and suggested that I should prepare .a paper on 'Understanding
Pakistan'. The following pages enquire into the question of whether the relationship is doomed at some fundamental level'
The conclusion is that the two-nation theory is the culprit. lt will not allow a better daY to come.
tz
Reassesslng Pakistan
The prime purpose of this study is to reveal how this theory has impacted on the evolution of political life and the attitudes of the ruling establishments in Pakistan, and how,
therefore, a correct assessment of Pakistan cannot be made
without evaluating the impact of its role. Whether or not in pre-partition days the theory commanded adherents is not
been followed in the writing of this paper though care has been taken to identify sources when ma.king value judgments. Its purpose is to inform policy makers and draw attention to
the limits of policy making unless the root cause is first tackled.
Valuable guidance was received from Shri PR Chari, Director, lnstitute for Peace and Conflict Studies, New Delhi,
in the preparation .of this paper. Nalini, Kartik and Ketan took care of the computerwork involved, including word processing. My deep thanks to all of them for their assistance.
The views expressed in this paper are born out of my own convictions. They do not claim to represent or echo the thinking of any official agency. New Delhi Anand K. Verma
April 1,
200'1
Executive Summary
Fiftythree years have passed since Pakistan was born after oartition of India: but the relationship between the hro countries
remains as adversarial as it was on the day of partition. The causes lie in the philosophical foundation of the state of
Pakistan, the two-nation theory that has no precedent in history
or justification in political science. Three factors contributed to the evolution of this theory. The Muslim rule over India for centuries in the last millennium had given to the Muslims a feeling of superiority and a perception of belonging to the conquering race. Both these
disappeared with the advent of the British Raj, when a sense
of loss of grandeur and inferiority came to overpower them. Their leaders remained outside the pale of power when the
system of parliamentary democracy was tried in 1937 in India. That experiment convinced these leaders that the only way Muslims could get back their lost glory and again taste power
was invented With this objective. lt received encouragement from certain British quarters that felt the need for a strategic
buffer between the Soviet Union and soon{o-be independent
14
Reassessrng Pakistan
to create Pakistan.
Jinnah had been an ambassador of Hindu Muslim unity in
long in the necessity of a Hindu Muslim settlement within a united India. His frustration grew with the reluctance of the
Indian Congress to agree to a larger share of power for the
The artificial character of the theory was dramatically demonstrated by emergence of Bangladesh. More recently,
MQM leader Altaf Hussain has rubbished it by observing that
partition was one of the biggest blunders of mankind. Jinnah had wanted Pakistan to be a secular democratic country. After his death in September 1948, Pakistan took a
totally different dlrection under the influence of doctrinaire religious groups. The two-nation theory was now given a
historical foothold by converting it into an ideology of lslam, which became the guiding philosophy. Allah was identified as the principle of ultimate sovereignty. This caused Pakistan to run into two serious problems. One was the slow and steady increase of influence of the lslamic constitue4cy in the polity and politics of Pakistan. Groups like Jamaite-lslami came
Executive Summary
lq
to their elected or mass support. Today, they have a voice in determining strategic policies of Pakistan, especially those
relating to India, Afghanistan and the lslamic world. They enjoy a certain partnership with government agencies in the
framing and execution of these policies. These developments led to the process of lslamisation and then Shariatisation' lt looks as though they could lead, in the end, to Talibanisation
as well.
The other problem arose from bestowing to Allah sovereignty over Pakistan. People of Pakistan, not being supreme, got deprived of being the final arbiter to confer
legitimacy to policies, institutions and governance The system
led to disparities and imbalances and consistent failure on values to be accepted with regard to nation, state and polity' This has enabled the Armed Forces to step into the seat of
power, which they thereafter never left, though sometimes
this power was exercised from the shadows. lslam and the Armed Forces have thus become the
tvvo
the Hindus, which the protagonists of two-nation theory usecl for the creation of Pakistan, was now directed by both these institutions against lndia, which was seen as the land of the Hindus. The Armed Forces in the years of General Zia-ulHuq's presidency sought support from lslam to legitimatise their rLile and as a result, got heavily oriented to lslamic ideology. Zia spelt out that apart from guarding the nation's
16
Reassessrng Pakistan
boundaries, the Armed Forces were also responsible for protecting itsideological frontiers as soldiers of lslam. lmplicit faith in the two-nation theory is thus sogght to be instilled in the Armed Forces. Pakistan rests its claims to Kashmir on the two-nation theory, not on law of any kind. lt has gone to great lengths
to wrest Kashmir, engaged in wars, promoted subversion and
of Status quo has been available to Pakistan since a long time but it wants to incorporate all the Muslim areas of the state on the basis of this theory.
Pakistan is unable to come to terms of peace with India. Wrongly, its leadership still believes that Indians want to annul Pakistan. lt, therefore, looks for parity and balance of power
with |,ndia, not recognising that the balance of power will be goverined by geographical realities of the subcontinent. lts
military doctrine is largely shaped by its concerns about India.
Its nuclear weapon policy is lndia specific. There is no knowing to what extent Pakistan may go to harm Indian interests. lts lSl is trying to encircle India with a
web of insurgencies in the north and northeast. lSl's aim now
is to destroy the cultural and secular integrity of India and to
raise Jehad against India to Pan lslamic levels. Pervez Musharraf describes Jehad as the religious duty of every
Muslim. In the conte)d of Kashmir and India the thrust of this statement is obvious.
Executive Summarv
tt
There is still a belief in army circles in pakistan that no real peace process, which could decide against a military option, ever started between the two countries. This is a
dangerous thought which rubbishes the gains made in bilateral
accommodation made at Tashkent (1965), Simla (1972) and Lahore (1999). With a nuclear arsenal and rejection of no first
one cannot be comfortable with the season of uncertaintv these factors herald.
Confidence building measures (CBMs) between India and Pakistan have not been able to achieve much because political
will and steadfastness have been missing in pakistan ruling circles. There is practically no evidence available to indicate that Pakistan has a fall-back position or an exit policy in its
disputes with India, notably Kashmir. There, thus, arises a need to separate the philosophical
from the territorial aspects of the Pakistani problem with India. The contradictions and conflicts between the practices of two-
nation theory and secularism have to be first resolved since they heavily impinge on other matters.
Introduction
Fifty three years have gone by since Pakistan was born after
Several factors contributed. Some were related to residual problems of partition such as division of stores and resources.
about India's reluctance to abide by partition. Some were caused by Indian policies with regard to Junagarh and Hyderabad, where Pakistan was without a justified locus
standi. The massacres on the eve of partition and immediately
ZU
Reassessrno Pakistan
should have eased and normalcy in relationship forged. This did not come about. lnstead there is a monumental sense of animus in Pakistan against India and the ruling establishment
there nurtures
it.
have pronounced negative sentiments for India. The astonishing feature is that when the citizens of the two
countries meet each other on a one to one basis on soils of
other countries they display a great deal of bonhomie. The real cause for continual estrangement at the national level
has to be looked for elsewhere.
It lies in the
Pakistan, the artificial two-nation theory. The theory has no precedent in history or justification in political science but it became the raison-de-etre of Pakistan. lt led to a change in
the nature of the state of Pakistan, set impossible tasks of parity and military balance with lndia, diverted the polity into
channels vastly differing from those in India and western
democracies, and came in the way of settling domestic national
Introduction
in lndia
and
Sri Lankan ethnic troubles, etc. Pakistan was always ranged against India.
Where did this two-nation theory come from? One has to
go back more than a millennium to get to the roots. Advent of lslam The origins are embedded in history. India had remained
culturally homogeneous through many' millennia. The rise of Buddhism had not caused communal disharmony. The first tremors occurred after the Arab invasion of AD 712. With the establishment of Muslim rule, conversions started, beginning with the followers of Buddhism, now under decline, and from
Reassesslng Pakistan
as
foreigners in India. Some of them like Aurangzeb showed an excessive evangelic zeal and intolerance for other religions. Often religion and not ethnicity or cultural affiliation, dictated who should receive their patronage, but where issues of state
lntroduction
z3
the latter considered the Muslims to be the bigger culprit. Disdain by the British and a sense of loss of glory had a
traumatic effect on the Muslims and for long they remained in
despairing isolation, depriving themselves of the early benefits
other reforms to get the Muslims into the mainstream of contempoiary developments. While on the one. hand he
influenbed the Muslims to come closer to the British to seek
on behalf of the Muslims The British desire to introduce local self government in India at the beginning of the 20th century set the religious
and social leaders of the Muslim community wondering how best to make use of the forthcoming opportunity to advance
was
24
Reassesslng Pakistan
ran counter to any such thought but they went with this principle. After all, the policy of divide and rule was in the long-term interests of the British Empire. The Muslim League (ML) was established in the year
'1906. lt was also the year of formal presentation of the demand
for a separate electorate on behalf of Muslims to the British. However, there was no thought of a separate nation behind this demand. The Lucknow Pact which came ten years later, climaxing efforts by Hindus and Muslim leaders joinfly to promote early grant of self-government to Indians, was acknowledged by Jinnah as an agreement which represented
an
ambassador of Hindu Muslim unity. The increasing teppo of the politics of Muslim empowerment converted him gradually
into a diehard exclusive supporter of Muslim interests. Jinnah,
Abul Kalam Azad, Khan Abdul Gaffar Khan and Sheikh Abdullah, who had much larger support among the Muslim
masses. The debates over the constitutional reforms in the country
the British that they could not stay in India much longer.
Elections fought on the basis of separate electorates in 1937,
lntroduction
.E
which gave Indians the first real opportunity of participation in power, had given absolute majority to the Indian Congress in
all states except Bengal, Punjab, Sindh and Assam. The Muslim League received only 4.8 per cent of Muslim votes. Leaders like Jinnah realised that separate electorates had not ensured access to absolute power and an alternate
strategy had to be worked out, but time was also running out.
Lahore
Resolution of March 23, 1940 "that the areas in which Muslims are numerically in a majority as in the north western and
eastern zones
constitute
Independent states in which the constitutional units shall be autonomous and sovereign". The resolution did not use the word Pakistan. lt was silent about any two-nation theory. lt spoke about self-governance
for Muslims of north west and east India but not of the vast numbers who lived in the other parts of the country'
Presumably, if under the Muslim rulers the entire country had been converted to lslam, no such resolution would have been
necessary. The selective approach for the reconfiguration of British India underlined the absence of a universal principle
Reassesslng Pakistan
The Lahore Resolution's vision of winning ultimate power for.the Muslims had strengthened the Muslim League,s position among Muslims of the country. In the ,1946 elections ML secured 428 of 492 possible Muslim seats in provinces and
all Muslim seats in the Central Assembly. lt took office in Sindh and Bengal. The British hurry to leave India and the obstinacy of the ML, born out of the new-found confidence
that it could claim to speak for Muslims as a whole, finally led the leadership of the Indian Congress including Gandhiji to
agree to partition and creation of Pakistan. Jinnah's quest for
Two-Nation Theory
Pakistan was the climax of the politics of separatism, which had its genesis in the events, which followed the first Arab
invasion. The new state had to invent a grandiose explanation
for its creation. Along with the state was sanctified the twonation theory to rationalise the birth of the former which earlier
had found only an occasional mention. The new state went beyond what its Muslim leadership had hoped for or were quite prepared for. Questions like how it should be governed or what should be its ideology had not been thought out or
settled in advance even in outline. These constitute a question
lntroduction
27
where every citizen had equal rights and freedom to practice his religion. His death in September 1948 marked the beginning of a process that took Pakistan tortuously in quite the opposite direction. Nationhood is based on shared language, background, history, ethnicity, etc. rooted in the common cultural consciousness. Pakistan became a state
without these attributes of a nation. The two-nation theory had, therefore, to be preserved as an explanation and its assumptions worked into a doctrine, central to which was the
thought that Hindus and Muslims were two different mutually antagonistic nationalities.
lslam as an ldeologY
Soon, Jinnah's concept of secularism was formally given up. India replaced Hindus as the demonic figure. There also
started a search for a suitable ideology of Pakistan to succeed the concept of a two-nation theory. The Jamait-e-lslami (Jl)
and other lslamic orthodox groups took a leading part in this drive and succeeded in creating the perception that lslam could be the ideology of Pakistan. Abul Ala Maudoodi, Amir' Jamait-e-lslami, who before 1947 had been an opponent of
now reinterpreted the movement as a religious movement of Muslims of India. Jinnah was posthumously conferred the distinction of being a leader of Muslim orthodoxy whose aims
28
Reassesslng Pakistan
In Maudoodi's,lslam, there was no place of honour for minorities or other sectarian beliefs. The turn of events in Pakistan by 1958 hdd caused its political establishment to
seek the goodwill and support of the conservative religious groups. Expulsion of Quadianis from the folds of lslam in 1974 under orders from a so called champion of democracy and liberal social values like Zulfiqar Ali Bhutto provided an
index of the extent to which the ideological centre of pakistan had been shifted from founder Jinnah's concepts of a secular state.
Koran and Ahadith do not spell out a framework for a state. But for conservative theologians the Medina government
of Prophet Mohammed remains the only model to be followed.
Muslims all over the world, according to their group genius, have made compromises with the contemporaneous reality.
and govern themselves on the basis of nation states. powerful
pulls are operating towards universalism and progresstve societies with many lslamic scholars describing lslam as
fundamentally secular. Two constraints have shaped the character of developments in pakistan - the two_nation theory
and its anti India ethos. The liberal elements in pakistan have
failed to checkmate the resulting reorientation towards lslamisation, and from there on to Shariatisation. Some now see a danger of Talibanisation.
lntroduction
29
books were rewritten identifying the creation of a completely lslamised state as the ultimate objective of Pakistan. Such a
theme has bred communal antagonism and freely allowed articulation of communal hatred. School textbooks expect a
to younger children, (kaf) stands for a Kafir who is depicted by a picture of a man in a dhoti and a pigtail; and the alphabet
(zoye) for Zalim, with a picture resembling a Sikh. lt is evident
of Pakistan. No other worthwhile institution could be created in Pakistan by the political class which inherited power from
30
Reassessrng Pakistan
power in 1977 extensively used lslam and Jl to establish the legitimacy of his rule. As a matter of deliberate policy he introduced a religious slant into the Armed Forces. Viewed through the prism of religion, India appeared as a dangerous foe that had to be vanquished.
The Armed Forces of pakistan became the arbiters of internal and external security, civilian interludes made no difference. Thus, major issues like nuclear weapons, Afghanistan and India (including Kashmir) reflect the policy options of the Armed Forces. No civilian leader, no matter
how powerful he might have appeared, such as Nawaz Sharif,
of
lntroduction
JI
with Jehadi colours. Though Kashmir was treated originally as the unfinished agenda of partition, the objectives have since been enlarged. The activities of lSl, a creature of the GHQ Pakistan, unfold the nature of these objectives to be destabilisation of India, through weakening its secular
character and territorial and cultural integrity' The animus felt by these controllers of Pakistani destiny will not disappear
even if a solution to Kashmir is found on their terms' A national
security doctrine has not been enunciated in Pakistan but it can be inferred to be the destruction ofthe Indian state through
balkanisation. Acquisition of a nuclear weapon status by Pakistan seems to have emboldened Pakistan to work with greater zeal against India. Policymakers in lndia have to come to terms with this reality. Faith is often placed in confidence building measures (CBMs) in the hope that they will ultimately lead to a friendly environment that will facilitate the solution
which earn it the label of a failing state, have not made its rulers turn to tasks of nation-building, lessening their focus on
India. The forces will change only if the agenda, dictated by the two-nation theory changes.
32
Reassessrng Pakistan
What are India's options in this scenario? India will have to work them out itself. Other nations, big or small, may be apprehensive about the future course of evolution of the lslamic or Talibanic ferment in pakistan but their policies will be limited by their own perceptions of thelr own national interests. Too much cannot be expected from them. lndian responses have to be governed by the ground realities as they are now, without any romantic sentimentalism or wishful thinking.
between the orthodox lslamic groups and mil_bureaucratic power structure, which effectively converted anti_lndianism
into an article of faith, using the two-nation theory and lslam as the instruments. Subsequenfly, the nature of Indo_pakistan problems will be analysed to establish why they are unlikely to be resolved in the foreseeable future conditioned as the rulers of Pakistan are with these two obsessions. Chapter 6 evaluates the costs, which the application of the two_nation
theory has imposed on the people of pakistan from the perspective of quality of life, which they face today as
lntroduction
compared to what it might have been if no such theory had surfaced. The question of whether the costs have been paid
makes Indo-Pakistan problems irresolvable, India has to address this theory directly and squarely to get out of the
impasse.
Germination of Pakistan
Entry of lslam into the Subcontinent
The embryo of Pakistan, for Mohammed Ali Jinnah, its founder,
was conceived the moment the first Muslim set his foot on the subcontinent.l That was in AD 712 when Arabs invaded
Sindh for the first time. lslam got no foothold in the subcontinent with this invasion.
The next encounter with lslam took place 300 years later
when Mahmud of Ghazni made several forays into northern lndia from Afghanistan. Mahmud's principal objective was to loot. He also destroyed several Hindu temples including the
one at Somnath. The destruction of Somnath temple traumatised the Hindu mind and created long abiding
resentments.
Muslim power got established in northern India with the conquests of Muhammad Ghauri towards the end of the 12th century. A sultanate was set up by his successors at Delhi. The Lodhis and Mughals followed, extending Muslim power
right up to Bengal.
Germination of Pakistan
lslam spread as Muslim power expanded. The new adherents to lslam from the local population came mostly from the followers of Buddhism, which was already under
decline, and from the lower strata of Hindus, particularly the untouchable classes. Conversions were encouraged by the
Muslim establishment to expand their constituencv and increase their security. Assimilation and Coexistence The expanding Muslim population did not, however, create watertight compartments for the Muslims and Hindus. The
early Muslim leaders were alive to the need for securing the goodwill of their Hindu subjects and were keen to see Hindus
and Muslims live in peace side by side. This promoted a synthesis despite the obvious differences between Hinduism
and lslam. According to the historian Romila Thapar2 the communities exhibited a fair degree of assimilation in their pattern of living by the 16th century. Urdu is an excellent
example of this assimilative process at the popular level, which
enabled the ruler and the ruled to talk to each other in the
same common language. North Indian classical music and the monuments built by the Muslim rulers in the north are
Reassessrng Pakistan
No doubt, there were excesses also against the Hindu religion by orthodox lslamic preachers and some members of the Muslim establishments but genocidal tendencies were by and large, absent. Sikhism was another product of the effort
at synthesis, with ideas borrowed from both religions, to reduce
the gulf between them. The monotheism of Sikhism was akin to monotheism of lslam. The emphasis of Sikhism on the establishment of a non-casteist society was intended to be an improvement on Hinduism, which permitted castes The emergence of Sikhism as a new religion in the 15th-16th century was influenced in no small way by the interaction between Hinduism and lslam. lslam spread to the southern parts of India also through Arab settlements on the Malabar Coast and the rise of Muslim kingdoms in the south. Here also, this phenomenon did not
lead to serious cultural clashes and by and large the adherents
of north India including Afghanistan, he was mindful about showing due respect to Hinduism. His desire to take the
Hindus with him is displayed by his inclusion in key positions
He
married a Hindu princess and abolished the hated tax Jazia, levied on non-Muslims. He tried to propagate a new religion Deen-e-llahi, which represented an effort to smoothen the edges of antagonism between Hinduism and lslam.
Germination of Pakistan
JI
The foundations of mutual tolerance and respect were rudely shattered during Aurangzeb's rule (1658-1707).
Aurangzeb ruled as
a puritanical orthodox
Muslim,
discriminating against Hindus and their religious institutions, reimposing Jazia and closing the doors of state offices to them. Sikhs were likewise persecuted. Suddenly, the chasms between the communities began to widen. The non-Muslim
communities no longer identified themselves with the Emperor but the Muslims felt and behaved like the members of a ruling
The Balance Changes The decline of the Mughal power after Aurangzeb and its final disintegration with the arrival of the British colonial rule resulted in radical changes in the balance between the religious communities of India. The Muslim upper classes
Reassessrng Pakistan
Muslim nobility and administrative cadres but trust did not develop as the British were regarded as usurpers. Hindus played no role in intensifuing the mutual distrust. Instead they also had negative sentiments towards the British who were
viewed as foreigners. The War of Independence of 1857 was
a combined effort of the Hindus and Muslims. ln British eyes, Muslims were the larger culprits for the Mutiny as they termed
it and consequently, their aftitude towards the Muslims became
relatively harsher. This chain of events had the effect of sending the Muslim
community into
a shell. lt
became reluctant
to
accept
Germination of Pakistan
39
community and the aloofness from the national mainstream had already become a cause for concern to the leaders of
the community. The most important contribution towards the uplift of the community came from Syed Ahmed Khan (181798) who set up an institution at Aligarh in 1875, which was to become a university eventually. Syed Ahmed Khan was both
his
of the country but without losing its identity as a distinct presence in the country. To promote these objectives he favoured close links and cooperation with the British. His
vision helped Aligarh grow into a major ideological and political
to modernise lslamic practices and customs to conform to the currents and trends of contemporaneous times. There was
political
40
Reassessrng Pakistan
in order to enable them to comprehend the objective and secuiar correlates of the religious and spiritual dimensions
and to incorporate these principles in their society and life."3
Syed Ahmed Khan's involvement with the interests of the
lndian Muslim community was, thus, apolitical. He did not believe in an lslamic political movement or approve of the
orthodox role of Ullemas. He supported Hindu Muslim unity but after the formation of Indian National Congress in 1885, moved away from the posture, believing that the Congress
would look after only Hindu interests. Adoption of this communal approach has been interpreted by some as amounting to a first overt step towards Pakistan.4 Jawahar
Lal Nehru, however, felt that Syed Ahmed Khan's opposition
Germination of Pakistan
41
influenced by the thoughts of Afghani, the major difference between the two lay in the framework of their respective
approaches. Whereas, Afghani targeted the West for his rhetorical attacks, Syed did not wish to alienate the British
and wanted to confine himself to raising the consciousness of
had considerably moved on beyond the social and political environments of ancient Arabia when the Koran was given to mankind. He believed in 'iitihad' which meant reflecting,
reinterpreting and updating the Koranic injunctions, to bring them in line with the developments which had since taken
place. Both Syed Ahmed Khan and later Mohammed lqbal embraced the principle of iitihad' and its compulsive logic that the core purpose of religious wisdom was not to be static
but to progress dynamically to bring guidance to an evolving society and its people. Syed Ahmed Khan's concerns
remained apolitical much to the chagrin of Afghani. Syed Ahmed Khan strove to bring about a consciousness of identity
among the Muslims of India, irrespective of where they lived in India, much like Waliullah who also wanted a consolidation
42
Reassessrng Pakistan
effective cultural force. Necessarily, this caused communal overtones to creep in, which were later to acquire defining characteristics. Symbolism in the pursuit of independent
identity assumed importance. Urdu became a tool of exclusive
not identified as the language of another national group. However, this rising consciousness, which essentially was
communal, also gave birth to a query in the minds of some
people, whether
it would be
advantageous
to have an
Early indications by the British rulers of their desire to involve the locals in a measure of self rule set the leaders of
the Muslim community thinking how best to safeguard their interests. Thus arose the demand for separate electorates,
which was conveyed formally to Lord Minto, Viceroy, in 1906
when a Muslim delegation led by the Aga Khan called on him. The Muslim League was also formed the same year. Both these developments were proof of Muslim arousal in a political sense and whose leaders would not hesitate to use
Germination of Pakistan
43
electorates went against the liberal political thought as it prevailed in Britain at that time but its use in India was not vetoed. This concept served the British lmperial interests of
Divide and Rule. The Muslim League had unequivocally come
out on the side of the British by providing in its constitution that it would be promoting feelings of loyalty for the British
among the Muslims of India.
In its quest for self-rule the Congress grudgingly accepted the principle of separate electorates in the Lucknow Pact (1916) in return for Muslim support to the Congress. The Encyclopaedia Britannica6 reports that Jinnah saw the development as the birth of a united Indian nation. At this
ooint of time Jinnah was a member of both the Congress and
the League. The two-nation theory had obviously not entered his horizons, or for that matter those of any other Muslim leader of any stature.
The Government of lndia Act of 1919 enacted the separate
electorates but other reforms did not measure up to the expectations of the Congress. A civil disobedience agitation
44
Reassesslng Pakistan
The Khilafat movement of the 1920s offers an excellent insight for understanding the dynamics of the process of
increasing communalisation in the relationship between the
Hindu and Muslim communities. Muslim leaders in the movement like Abul Kalam Azad, Maulana Mohammad Ali,
etc. were both Pan lslamics and Indian nationalists and they suc0eeded in garnering general support for the cause among
the Muslim masses of India. With Congress and Mahatma Gandhi also pitching in, the movement became a refreshing
symbol of Hindu Muslim unity. However, the Khilafat movement
did not succeed in its objective of preventing the demise of the Caliphate in Turkey and demonstrated that use of lslam as a political weapon could be counter-productive. Kemal
Ataturk used the movement to banish forever the interference of lslam in matters of state and converted Turkev into a secular
reoublic.
In India the mobilisation of Indian Muslims under the aegis
of Khilafat, however, added to the strengths of communalism after the movement had fizzled out. Disagreements flared up
on local issues, and ideological consolidation, which had been
built up in Muslim opinion, came in handy to bring up vehemence in outbursts of alleged outrages. There were eruptions of communal violence. One major incident of this
nature was when predominantly Muslim peasantry wreaked vengeance on Hindu landlords during the Moplah rebellion in the territory of present day Kerala, triggered by absence of long needed land reforms. There were actions and reactions
Germination of Pakistan
45
of religion.
The mass upsurge offered little opportunity to the Muslim League or Jinnah to consolidate their positions. Jinnah also
did not subscribe to the non-constitutional tactics of a mass uoheaval or to the use of politics for securing the narrow ends of religion. He resigned from the Congress in 1920. The
League also withdrew from the Lucknow Pact in 1922, finding that it inhibited its opportunities for growth. Neither Jinnah nor
the Muslim League at this point of time could claim to speak for the Muslims of India. The League's communal politics had made the leaders of the Muslim community in the country
examine the question of whether their lslamic religion conflicted with their Indian nationalism. Most important Muslims like
Maulana Abul Kalam Azad were emphatic that no room for such a conflict existed, since religion operated in the personal
sphere and nationalism in the political sphere' Their sentiment is best expressed by Maulana Mohammed Ali in the following words: "Where God commands ....1 am a Muslim first, a Muslim second and a Muslim last and nothing but a Muslim.... But where India is concerned, where India's freedom is concerned, where the welfare of lndia is concerned, lam an Indian first,
46
Reassessrng Pakistan
....1 belong to two circles of equal size but which are not concentric. One is India and the other is Muslim.... We belong
the Muslim League and Jinnah remained bent on exploiting the communal card to secure political power. The Congress
leaders were alive to such aspirations and were ready to offer adjustments. The Motilal Nehru Committee set uo in
1928 to prepare an outline for an Indian constitution proposed
wanted 33 per cent reservations of all seats for the Muslims. The Nehru Committee was prepared to concede reservations proportionate to population only. Jinnah was dissatisfied by this formulation of the Nehru Committee but did not drive himself to the extreme position which he was to take later in 1940. He had not given up on the ,,necessity of a Hindu_ Muslim settlement.... and of a friendly and harmonious spirit
in this vast country of ours".s The results of the elections conducted in 1g37 under the 1935 Government of India Act, which gave a parliamentary
democratic set up to the provinces within a federal structure led to an intense soul searching within the League leadership.
Congress received absolute majority in all the provinces exceDt
Assam, Bengal, Punjab and Sindh. The League could secure only 104 out of the 489 seats under separate electorates. In
Germination of Pakistan
47
the Muslim majority state of Punjab it managed to get only one seat out of 86 and in Bengal 37 seats out of 119.10
The poor results clearly proved that the League could not speak for the Muslims of the country, and that its agenda had
to
include League representatives in the governments it formed in the provinces, provided they joined the Congress legislature parties. The League rejected the offer fearing ultimate selfliquidation, which would be totally contrary to its desire to capture power on its own. lt, therefore, concentrated on using the communal approach to the hilt. lt set about convincing the Muslim masses that in an independent India, there would be no way of escaping from an overarching framework, comprehensively dominated by Hindus.
abruptly at the beginning of World War ll to protest against the Viceroy's committing India to the war on the side of the Allies, without any prior consultation with the Indian political leaders, Jinnah called for the occasion to be observed as a
day 'of deliverance and thanksgiving'. The call amounted to a crude attempt to hurt the sentiments of the vast numbers of
nationalists in the country, inflame Muslim opinion and convey
48
Reassesslng Pakistan
Thanks to the efforts of Syed Ahmed Khan, separate electorates and the political ambitions of League leaders
including Jinnah, some academic interest had already been generated about Muslims being a distinct entity on their own.
In the 1930s, a few Muslim students of Cambridge University
and Baluchistan. This name, born intellectually abroad, did not refer to Bengal, suggesting that no ideological
underpinnings were at the roots of the idea and the concept
and
Baluchistan amalgamated into a single state. Self government within the British Empire or without the Empire, the formulation
of a consolidated northwest Indian Muslim state appears to me to be the final destinv of the Muslims at least of North West
lndia."11
Absence of Bengal from this formulation, even though Bengal had a larger number of Muslims, indicated that lqbal's
Germination of Pakistan
49
'as a cultural force in this country' rule out the possibility that lqbal had a specific model of governance for this cultural entity or was looking at the Muslim masses of India as a separate political unit. His concerns were autonomy not
political independence. The political framework he envisaged
was either British India or Independent India. His Muslim India
was thus to function from within India and religion was not the idiom of its foundation as a state. At best it could be said that lqbal's vision constituted an extension of the principle of separate electorate. i.e. to carve out a cultural area where local power would largely be in the hands of the Muslims. Jinnah's lhinking was evolving somewhat on the same lines. He had convinced himself that the best interests of Muslims would not be served if participation in power was
governed by the communal ratio of Hindus and Muslims. He
wanted the Muslims to have their own distinct space in power.
Reassessrng Pakistan
splitting 'the common motherland'. The focus was not on an lslamic nation, but on an lslamic cultural home where lslam
The Lahore Resolution which was adopted on March 23, 1940 at the annual conference of the Muslim League and which became known as the Pakistan Resolution projected
this idea in a more concrete form, albeit without using the word Pakistan. lt said that "no constitutional plan would be
workable in this country or acceptable to Muslims unless it was designed on the following basic principles, viz. that
geographically contiguous units were demarcated into regions which should be so constituted with such territorial adjustments
areas other than east or northwest. lslam was not used to define the goals or the political organisation of the entities
sought to be created. lt contained not even a hint of rebellion
Germination
of
Pakistan
5'1
theory being at play was no more than use of "a tool of political expediency."l4
from the subcontinent and transfer of power to the Indians were to be made in consultation with them. Since they did not
recognise Muslims in India to be a nation, the federal framework was the point of their framework. The British regarded Muslims only as a minority, which could not be allowed to place a veto on the advance of the majority.ls This
was the conviction of the British Labour Government, which came into power in 1946. The earlier government of Winston
to
in
Reassesslng Pakistan
Khan,
Choudhary Khaliquzzaman etc. all came from Muslim minority provinces. They realised that they must at all cost build up support in the Muslim majority areas and such support would only be obtained through an intense campaign on communal lines. The political format was kept in a low profile and the religious idiom given the pride of place in the electioneering campaigns. The question of nationhood was hardly ever
mentioned but the spectre of Hindu repression was magnified
out of all proportions. The strategy worked. The League won 428 seats out of 492 Muslim seats in the provinces and all
the Muslim reserved seats in the Central Assembly. The League formed governments in Sindh and Bengal but in
Punjab this honour went to the Unionists who had 88 seats against the League's 87. The newly enhanced stature of the League made its leaders more intransigent and determined to split the country unless a formula could be devised which
out a constitutional scheme for transfer of power, while maintaining the integrity of lndia as a nation. The Mission
Germination of Pakistan
proposed a loose union with its centre administering defence, foreign affairs and communications, of provinces in communal
to be
autonomous. Also
proposed was an interim government at the centre, with five members each from Congress and League, till a Constituent
acceptance was in the hope that it would pave the way for
would now not take too long to leave India, and were ready to create mayhem to press their point. On this day Calcutta
suffered in communal riots with 20,000 casualties and 5,000 dead. This was followed by massive killings in Noakhali. The carnages established that the League had become a force to
54
Reassessrng Pakistan
Separatism Triumphs
The British Government announced June 1948 as the deadline
for its departure from India but partition or Pakistan was not
yet mentioned. Lord Mountbatten was sent as the Viceroy in March 1947 to execute the mandate. Mountbatten advanced
lndependence Day to August 15, 1947. No protracted negotiations were now possible to work towards a political
compromise. Congress leaders became resigned to accept
partition since the British were considering transferring power
province by province
lf
Jinnah
had not been born or if the whole of India had been converted
to lslam following conquests by Muslim conquerors, perhaps there would be no Pakistan today. Was Pakistan the logical
end of what has been called the two-nation theory? The Pakistan movement was neither a secessionist movement
nor a separatist movement. lt was basically just an anti Hindu movement in its final phases. League leaders including Jinnah
tool they had to carve out an area where their personal ambitions of political domination could be fulfilled. Prior to
Ge
rm
in
ation of
P aki
stan
into existence. Emergence of Bangladesh was entirely the result of Bengali nationalism and lslam had no role whatsoever
in it. Furthermore, on achieving independence, Bangladesh jettisoned the notion that nationalism was religion based and
adopted secularism as its creed. More shocks may be in the
offing for Pakistan. The Muhajir Quami Movement leader Altaf
Sindhi, Baluch and Pakhtoon leaders that oartition was one of the biggest blunders of mankind.lT There is a vocal class
in
the state in the 1930s provide further proof that the twonation theory had no validity. The population of the Valley
was predominantly Muslim. From 1931, Sheikh Abdullah had
Reassessrtg Pakistan
Abdullah founded the All Jammu & Kashmir Muslim Conference to fight for the establishment of responsible
government in J&K. He realised that to secure this objective' all the communities in the state must have a united and non-
in 1939, the
Muslim
Conference was converted into a National Conference, which then functioned as a secular party. In India the Muslim League
was to adopt its Lahore Resolution just a few months later in March 1940. lt was thus clear that the politics of communalism had little attraction by and large for the Muslims of the Valley. Ghulam Abbas revived the Muslim Conference in 1941
with the support of the Muslim League. Approaches by Jinnah
to Sheikh Abdullah to align with the revived party to present a single front of Muslims were rejected by Sheikh Abdullah.'
Germination of Pakistan
a built-in component of
deep-rooted
as India. There has been no mellowing of this antagonism during the 53 years that India and Pakistan have existed as
independent countries. lt seems difficult, therefore, not to come
to a conclusion that a change for the better will not come about without a modification in the perceptions of Pakistan policy makers of this unnatural theory.
Nores
1. 2. 3. 4. 5. 6. .
7
Saroosh lrfani: 'Progressive lslamic Movement', p.37 as quoted in 'lslam, Politics and the State: The Pakistan Expeience', Ed. Asghar Khan, Zed Books Ltd. 1985. Percival Spear: 'A Histoty of lndia' p. 225, quoted by Blinkenberg' o. 31.
8. 9.
58
Reassesslng Pakistan
11. AM Zaidi: 'Evolution of Muslim Political Thought ln lndia'Vol ly, p. 67, quoted in'lslam, Politics and the State', ed. Asghar Khan,
o. 78.
12.
rbid.
15. Statement March 15, 1946, of Prime Minister CR Atlee quoted in "Pakistan Resolution to lndia" ed. Latif Ahmed Shenivani. Dava
Publishing House, Delhi, p. 96.
16. CH Phillip and MD Wainwright: 'Paftition of India', p. 32, quoted trom 'lslam, Politics and Sfate' ed. Asghar Khan, p. 169.
legislators in Delhi on April 11,1946, he had observed"'What are we fighting for? What are we aiming at? lt is not for a theocracy, nor for a theocratic state."
1
After Pakistan had come into being he had said, "Pakistan was not going to be a theocratic state, to be ruled by priests
OU
Reassessrng Pakistan
political institutions, accountability and a just society were values of equal significance. Bred on concepts of Western
liberalism, Jinnah wanted the new state to be guided by secular idealism, not narrow-minded religious orthodoxy. He indicated
"We are starting with the fundamental principle that we are all citizens of one state. We should keep that in front of
of one nation."3
The above quoted statement of Jinnah also suggests that
in the founder's thinking, the two-nation theory had no further
with his death in September 1948, Pakistan started treading a path, not charted out by him, and the question of religion as Pakistan's ideology suddenly became a compelling issue. The initiative was wrested by lslamic parties and groups
led by Maulana Maudoodi, Amir Jamaile-lslami (Jl). lronically,
ldeology
61
eyes, Jinnah and his colleagues were not good Muslims as they were trying to split the Muslim Ummah and the agitation
underwent a dramatic change. Accepting the reality of the new state, he changed the focus of his activities towards justifying its birth. His earlier ideological opposition was transformed into efforts to give the new state a new ideology' the ideology of lslam. The two-nation theory was, thus, to be given a new lease of life. Maudoodi came out with fresh interpretations. The 'unlslamic' movement for Pakistan was now declared to have been a religious movement, which would enable the real Muslims to lead the country in the glorious ways of lslam. Jinnah became a good Muslim for having led such a drive. All such concepts as a Pakistani nation and
The objectives resolution adopted by the Constituent Assembly on March 7, 1949, moved the ethos of Pakistan
away from the dreams of Jinnah and relocated its ideological
centre of gravity
62
Reassesslng Pakistan
sovereignty over Pakistan in Allah's hands. "The sovereignty of the people was exercisable only within limits prescribed by Him." lslam would thus serye as the overarching fountain for constitutional values. "The principles of democracy, equality, tolerance and social justice as enunciated by lslam shall be fully observed." Minorities were promised freedom ,,to profess
and practise their religions and develop their cultures.,' The context cleady indicated that this freedom to the non-Muslims to order their spiritual and temporal lives would be within the concepts governed by the principles of lslam.a
The Objectives Resolution had the effect of giving pakistan
not
said that Pakistan was an lslamic state or that lslam would be the ideology of the state. The reorientation was largely a
response to the need to give continuity to the two-nation theory and to emphasise that lslam was the raison-de-etre of
Pakistan. lt was intended to serve a binding function.
community of language, territory, economic life and psychological make-up manifested in the community of
culture.s The subjective factor of identity also plays a role in defining a nation. Pakistan, at its inception, consisted of ethno-
Pakhtoon and Baluch tribes had long enjoyed a sovereign or quasi-sovereign status in the British as well as pre British
period. The Punjabis had not been converted into supporters
of the Pakistan idea until the close of the 1940s. The Bengalis
ecclesiastical authority nor accords to the class of Ullemas a defining role. Shias and Sunnis differ widely among themselves
and Sunni doctrines are variously applied by the four independent schools that have sprouted from them. Declaration of Qadianis as a non-Muslim minority was an
eloquent commentary on the spirit of tolerance of the selfappointed guardians of lslam in Pakistan. Secondly, lslam never became an issue in popular perception. The people of
64
Reassessrno Pakistan
Pakistan, by and large, displayed secular tendencies, differentiating between the roles of religion in personal life
and political life. In elections, the results always showed that
state, polity and governance. The classical lslamic thought insists that all authority over mankind belongs to Allah, which
implies that people's sovereignty as enshrined in a constitution,
cannot be the source of the supreme law of the country. This abstract notion of Allah's sovereignty offers no practical way
that have succeeded in setting Pakistan on a continually widening path of lslamisation. The influence the religious
groups were able to wield was far in excess of their political support in the country. They could do so because the ruling military, bureaucratic and feudal establishment in the country recognised early that with lslamic groups on their side, they would be able to dominate governance of the country. lslam, therefore, became a pillar of the state, the preservation of
one being synonymous with the preservation of the other. This also gave a continuity to the sentiments of those who
who were now members of the elite of the new nation, who
had felt the non Muslims to be a threat to their interests then
and who now believed that such threats had assumed even more dangerous oVertones after Pakistan's formation!
Animus Continued The Pakistan idea had been developed on the communal
plank of "negative non Hinduism". The League leaders had
targeted Congress as
show as much eagerness to persuade the states within the borders of Pakistan to join the new state as to dissuade Indian states from joining the Indian Union.... it was one of
oo
Reassessrng Pakistan
lndia, which was identified as Hindu rather than secular by the League leadership. The communal massacres of 1947, creating a refugee influx, the division of assets notably the military stores between lndia and Pakistan after the departure of the British, the Indus water dispute, and the incorporation of Junagarh into India (November, 1947) and Hyderabad (September, 1948) were cited in Pakistan as instances of
malevolent intentions of India against Pakistan. The Radcliffe
Award, giving Gurdaspur, the district that provided Indian access to J&K state to India, had elicited severe condemnation from Jinnah himself. Following this award, he was to describe
Pakistan as moth-eaten and truncated. Some statements in India nostalgically hoping for reunification of the two countries or giving expression to the majority view in the Congress that partition was unfortunate, were seized upon in Pakistan to
claim that lndia would try to undo Pakistan. The Pakistani establishment relied on the haro-nation theory and lslam to
sustain a combative mood against India.
Jinnah might have hoped that the truncated and motheaten structure of Pakistan would be somewhat rectified by
the incorporation of J&K state into Pakistan but the simple logic behind his ordering a tribal incursion into the state, foltowed by infiltration of regular military troops, was the twonation theory. Being a Mustim majority princely entity, he
wanted to make sure that it became a part of Pakistan. As
ldeology
67
and Pakistan. The establishment in Pakistan felt that India had now also become a military threat to Pakistan. Frequent
recourse to lslam became one of the ways to combat the psychological pressures of such perceptions. There also commenced a drive to strengthen the Armed Forces, which have since grown into one of the largest in the world. lslam
and Armed Forces have thus become the bedrock of the foundation of Pakistan.
Moves Towards lslamisation
of war between liberal politicians and western oriented bureauoatic-military hierarchy on one hand and the lslampasand orthodox parties and Ullemas on the other, over how much polity and governance could be lslamised. The former wished to keep the levers of power in their own hands but could not publicly go against the increasing lslamic demands
of the latter. The latter, using lslam as an instrument, were anxious to get a foothold in the structure of power. There
Reassesslng Pakistan
former's political, economic and social interests to remain intact by and large, while at the same time not obstructing growth of orthodoxy. A demand for declaring Qadianis as
non-Muslims in '1953 was thus not effectively countered by
1956
declared the country lslamic but gave no legislative or policy role to lslamic groups. Only a Muslim could be the Head of
the State but the Prime Minister was to be the fountainhead of all executive power. The constitution provided that no law
contrary to the injunctions of lslam could be enacted but took
away the power of the Judiciary to intervene if such a law actually got passed by the National Assembly.
Nevertheless, the role of the Ullema had increased in the
body politic of Pakistan and it became all too evident during the '1965 election campaigns for the office of the President
under the 1962 Constitution. The candidates were Fatima, Quaid-e-Azam Mohammed Ali Jinnah's own sister, and General Ayub Khan who had seized power in 1957 and
fathered Pakistan's second Constitution of 1962. The elections
a state in an lslamic country. Ayub Khan's use of lslam for political purposes marked the beginnings of a relationship
between the military as an institution and orthodox groups, which was to lead to greater lslamisation of the country. The Bangladesh crisis of 1971 saw a deepening of these
bonds. The orthodox Muslim groups of West Pakistan like the
Jl believed that the Bengali Muslim culture had been heavily influenced by the Bengali Hindus such as Rabindranath
Tagore and in the eyes of the former such influences were
unlslamic. These groups gave unstinted support to army action
to
existence, the Army was not blamed but the Bengali Hindus
Party had emerged as the single largest party in West Pakistan, Bhutto had denounced the Tashkent Agreement
(January 1966) entered into between India and Pakistan, to
end the Indo-Pak war, and had resigned from his Foreign Minister's job in Ayub Khan's cabinet. Bhutto had vowed several times during his election campaigns to fight for a thousand years with India. His anti-lndianism and his social
slogan of 'Roti, Kapda and Makan' (bread, clothing and shelter)
were the secret of his success in the elections. After his assumption of power in the residual Pakistan (December
Reassesslng Pakistan
1971), Bhutto's hold on power started slipping away as the people's disenchantment started growing over his failure to redeem his promises of economic progress and social uplift and his preference for personalised rule over development of durable institutions. The religious groups mounted an assault
the educational system. General Zia-ul-Haq's military coup of 1977 ended the socialist experiment of Bhutto and introduced an era during which the political philosophy of lslamic orthodoxy was to make momentous advances. In seeking legitimacy for his rule, Zia leaned more and more towards values and
interpretation of lslamic tenets. Religious groups, particularly the Jl, saw this as an opportunity to penetrate into the power structure of the state through which they could influence the polity even more. Each served the most intense need of the
rowth of obscurantism
of course, ensured that the two-nation theory would remain in place and relations with India could not change for the better.
Their collaboration distanced modernity from Pakistan and led to an environment, which hampered the return of democracy to Pakistan post Zia.
ldeology
71
Rewriting of History Zia started with a missionary zeal and left no one in doubt that he considered lslamisation of Pakistan society as his
paramount duty. Objectives of education were fundamentally
altered and the history of Pakistan rewriften so that new doctrines could be imbibed from a tender age and the citizen grew with a proper ideological identity. Secular and liberal values were to be eliminated and substituted with lslamic ones. Under the 1981 directives from the University Grants Commission for the rewriting of history books, the students
were to be educated to accept without reservation, Pakistan as an lslamised state and lslam as its ideology. The themes
2.
3.
The depiction of Jinnah as a man of orthodox religious views who sought the creation of a theocratic state.
A move to establish the Ullema as the genuine heroes of the Pakistan Movement.
4.
An emphasis on ritualistic lslam, together with a rejection of liberal interpretations of the religion and generation of communal antagonism."e
Reassessrno Pakistan
The 'ideology of Pakistan', still without a definition in any official document, thus came to be invested with the status of
national dogma. Jinnah had never used this phrase. The words
had been used for the first time in 1951 in the manifesto of
Jl, which had also clarified that efforts to include secularism or any other foreign ideology as tantamount to hifting at the
roots of Pakistan. Recognition of the phrase was not merely
an index of the influence of the Jl with the establishment; it also signified to what extent lslam was considered essential for the preservation of the prevailing state order.
The new history textbooks describe the two-nation theory as the original parent of ideology of Pakistan and the latter as
the inheritor of the mantle of the former. The two-nation theory,
on the ritualistic observances of lslam enabled them to underplay the social and egalitarian aspects of lslam.
Emphasis on lslam exacerbated feelings against non-Muslims such as the Hindus and the Qadianis. Lectures from the pulpits
The interests of both the religious orthodox and the military were served by sultably linking such images with India.
Zia's Priorities
On seizing power (July 1977) Zia had announced that elections
ldeology
73
be his guides, he sought a divine right to rule, unmindful of the temporal requirements of contemporary political thought
and domestic needs. Zia took his lslamic zeal to defining a new role for the Armed Forces. He called them protectors of
the ideological frontiers as well, not just territorial frontiers, since Pakistan was created on the basis of the two-nation theory and its ideology made them soldiers of lslam.1o
After the declaration of the Objectives Resolution in March
1949 that lslam would be the backdrop of constitutional values,
the progress of lslam in constitutional provisions had been creeping and halting. The first Constituent Assembly had recommended a committee of five Ullemas to monitor lslamic
applications. The first Constitution (1956), enacted after ten
and Sunnah would be enacted, it provided no specific mechanism to ensure this. The second Constitution (1962)
74
Reassessrng Pakistan
enacted during Bhutto's period, for the first time made lslam the state religion, which was an acknowledgement of socialist Bhutto's compromise with the forces of religion. All members
of the Council of Ministers had to be Muslims. An lslamic Council was to review existing laws to ensure that none
repugnant to Koran or Sunnah remained on the statute books.
Zia's programme added great substance to the lslamisation process, but only in specified fields, which largely interested the orthodox elements. Shariat benches were set up in each provincial High Court with an appellate bench in the Supreme Court in '1979 but the provincial benches were replaced by a
Federal Shariat Court in 1980. Four Hudood Ordinances were
to a dress code and discouraged from participation in sports, stage activities, etc. A compulsory tax of Zakat was made
ldeology
75
applicable to certain investments. The Ahmedias, already declared non-Mustims by Bhutto's regime, were now prohibited
from calling their religious places as Masjids or using Koranic verses or lslamic symbols. In June 1988' a Sharia ordinance
was issued declaring Sharia to be the supreme source of laws and 'the grand norm for guidance for policy making'
The Objectives Resolution had envisaged two classes of citizens for Pakistan, Muslims and non-Muslims, not with identical rights. Zia's policy of lslamisation which eventually converted into one of Shariatisation divided Muslims also' leading to sectarianism and large scale sectarian violence, apart from the targeting of the non-Muslims' The Sunnis and the Shias established their own militant organisations, Sipahe-Sahiban and Sipah-e-Mohammed to fight each other' Now
non-
Muslims. The Zakat funding of Madrassas in Punjab increased from Rs.9.4 million in 1980-81 to Rs.68.96 million in 1986-
and a Hindu. The pictorial aid for teaching alphabets at the primary level had 'kaf and 'zoye' standing for Kafir and Zalim respectively, with illustrative pictures of a Hindu Pandit and
turbaned Sikh respectively. The virus of hatred was not only kept flourishing, but its scope was also being extended' The Blasphemy Law against religious minorities was another benchmark in this murkY exercise'
Reassessrng Pakistan
Zia's policies have made the orthodox groups an integral part of the political parameters of the country even though their public support has not grown. The civilian governments
be
abandoned following intense opposition. General Pawez Musharraf who seized power through a coup on October 12,
1999 twice had to bow down to pressures from the religious
Constitution that had been dropped after his coup. His directives to the Madrassas to fill up a questionnaire seeking
statistical data have been treated with contempt, suggesting that lslamic might is now stronger thanthe might of the Armed Forces in Pakistan. The presence in neighbouring Afghanistan of the Taliban
who accept no moderatibn and who have spawned a new form of lslamic extremism constitute a danger to all countries in the region. The Taliban believe that their Jehad brought down to its knees one super power, the Soviet Union. They
have strong links with fundamentalist organisations in pakistan
and together they dream of creating a new Ummah across the world, much in the image of what the Muslims achieved in the 7th and 8th centuries. In 1988, the Taliban Supremo
ldeology
77
General Musharraf has echoed the same thought later, converting Jehad over Kashmir into state policy. Volunteers
for Jehad are training at several centres, the most notable of which are Darool-ul-uloom, Haqqania of Maulana Samiul Huq and Muridke, head quarters of Lashkar-e-Toiba. Samiul Huq would like to lay his hands on a nuclear bomb if he can get it, no doubt to carry forward his aim of a Muslim International through an lslamic bomb. The animus, nurtured by the twonation theory, has been taken to monumental heights by its succeeding Avatar, the ldeology of Pakistan.
Nores
1. 2. 3. 4, 5. 6. 7. 8.
Fatahyab Ali Khan: 'Objective of Pakistan Movement', lslamabad Daily, Muslim, May 4, 1984, as quoted by Saroosh ffiani, 'The Progressive lslamic Movemenf', ed. Asghar Khan, p.62. From a broadcast to USA, recorded in Feb 1948, quoted in F Ali Khan, 'Objective' .
3. K Bahadur: 'The Jamait-l-lslami' of Pakistan, Lahore, Progressive
Books, 1978, p. 50, as quoted by Abbas Rashid, 'Pakistan, The ldeological Dimension, p. 83, ed. Asghar Khan. Ardeshir Cowasji: Frontier Post, July 4-5, 2000, as quoted in Pot of August 1, 2000, p. 3160. Feroze Ahmed: 'Pakisfa n's Problems of National lntegration', p. 229, ed. Asghar Khan.
Percivaf Spear: 'A History of lndia'p. 235, as quoted by Blinkenberg,
p. 44.
Sisir Gupta: op cit, p.45, as quoted by Blinkenberg p. 52. Azhar Hamid: et al 'Mutalliyah-l-Pakistan', (lslamabad, Allama lqbal Open University, 1983), p. 32, as quoted in'lslam, Politics and Slate', ed. Asghar Khan, p. '175.
78
Reassessrng Pakistan Pawez Amir Ali Hoodbhoy and Abdul Hamid Nayyar: 'Rewiting History of Pakistan', p. 165, Asghar Khan et al.
Press Ltd. 2000. o. 181.
9.
socio-politico-
economic entity. In a sense they were not ready for Pakistan when it came and had no framework drawn out to deal with
the popular aspirations that surfaced. The ill health and death in September 1948' of founder Mohammed Ali Jinnah, prevented Pakistan from benefiting
Reassessrng Pakistan
have worked for establishing durable representative and participatory institutions and processes in the new country.
The lesser leaders who succeeded them and who were mosfly
drawn from the feudal classes in Punjab were not wedded to such ideals. This environment suited the bureaucratic military complex which was the inheritor of the British legacy of colonial culture
and which had remained intact in the post independence milieu. lt constituted the steel framework on which rested the real responsibilities of governance while the political class feuded in the Constituent Assembly, on such questions as
the form of government, role of lslam, parity between the two wings of Pakistan, issues relating to federalism, etc. The more
and industrial elite also allied with them to safeguard their own economic and other interests.
None of the Muslim intellectuals or political stalwarts who had contributed to the build up of the pakistan idea before partition had examined the question whether the existence of
to
81
an anchor, the Ullema class had hoped that in due course they would be able to establish their hegemony over the state
on the strength of their lslamic credentials. The bureaucratic military complex, with their values inherited from the British,
in their early phase, would only accept that the prevailing social environment called for an interface between politics and religion but they could in n0 way be considered synonymous with each other. Thus evolved a role for them, to keep the conservatives of religion at bay while ensuring
that the absence of a sense of Pakistani nationalism did not lead to the ruin of the state"
dz
Reassessrno Pakistan
for parliamentary values and were disinclined to close their differences to speedily work out an agreed constitution for
Pakistan. Inevitably, the bureaucracy acquired an ascending
role in policy and decision-making, supported from the sidelines by the military. In 1954 the Constituent Assembly
was dissolved by Governor General Ghulam Mohammed, a
former civil servant, when the draft constitution proposed that
no respect for democratic norms. The period 1947-58 saw a change of seven Prime Ministers and eight Cabinets. But
between January 1951 and 1961 there had been only one Commander-in-Chief Mohammed Ayub Khan, who
in
1958
83
Armed Forces had maintained a non-political but disciplined and professional image. The military was also by and large
a cohesive force, with its personnel hailing mainly from Punjab
and to a lesser extent from the Pakhtoons. The mindless political squabbling of the groups jockeying for power had
corrupted the political processes and created an impression
in the people's mind that their welfare and survival of the state could only be guaranteed by the Armed Forces. The
Press, independent politicians and even some army circles
had started whispering for the Army to take over directly the governance of the country. In the popular view, the Armed Forces thus, had already become the main pillar of strength
of the state. Moreover, the Armed Forces constituted the best-
Forces each year to maintain a strong defence profile. Ayub's military takeover was intended to establish political
84
Reassesslng Pakistan
and participation were of secondary importance. Ayub Khan had been disillusioned by the political theatre enacting every
now and then in the Constituent Assembly in the early 1950s
development. His system too in the long run, failed to receive popular acceptability since it proved inadequate to deal with
meanwhile, the military had been able to establish a dominating voice in all the core policy and decision making
mechanisms, especially in the strategic field.
and he took care to ensure that it developed a stake in governance and became partial to the system being developed, turning a blind eye towards dissatisfaction in the civil society as it started emerging from the inadequacies of
the 1962 Constitution. The Constitution of 1962 provided that
had been a lieutenant general or equivalent. A system of oermanent secondment of defence personnel to the Civil
Service of Pakistan began in 1960. Though this practice was
discontinued in 1963, another process of placing senior retiring
85
autonomous bodies or in ambassadorial assignments was initiated. The system of granting agricultural land for service
rendered was continued with greater vigour. The military was
participation and expression. His exit and succession amounted to another coup by the military. Under the 1962 Constitution, on the President's resignation, the Speaker of the National Assembly took over temporarily as Acting
President, with election of the new President being completed
the
Yahya Khan, abrogated the constitution, promised reforms and restoration of democratic and civilian rule, but the deepseated alienation of Bengali East Pakistan proved to be his
Waterloo.
In the elections for the National Assembly held under the
86
Reassessrng Pakistan
Pakistan, though in
been
The six-point formula was aimed at restoring the balance and removing the oppression by the West. The military wanted some modifications in this formula before transfer of power to
Mujibur Rehman, who, as the new Prime Minister, would have also had a decisive voice in the framing of the new constitution.
military and the diminution in the public esteem for them enabled Bhutto to establish civilian primacy over them. The
new Constitution of 1973 made its subversion or abrogation
by unconstitutional means or force an act of high treason punishable with life imprisonment or death. Despite these
factors, Bhutto was unable to minimise the role of the Armed
87
Forces in the system. With the vivisection of Pakistan, its defence needs were seen to have grown, requiring the
strengthening of the clout of the military.
A secret
nuclear
leadership was crucial. Bhutto also relied heavily upon the military for dealing with serious law and order problems such
as the tribal nationalist insurgency in Baluchistan in 1973 and tribal uprising in Dir in 1976. However, Bhutto started gradually
losing his standing and goodwill with the people and the military as he turned more and more to personalised and
autocratic rule, denying political opposition legitimate space to function democratically. The creation by him of a new paramilitary force, Federal Security Force (1972)' was seen as a counterforce to the military. The rigged general elections
ol
1977 in which the PPP won 155 out of 200 seats for the
National Assembly led to a wide ranging anti Bhutto agitation during which opposition groups appealed directly to the Armed
The ultimate question again became one of the legitimacy of the Government, and the military was being made the arbitrator by both the sides. The deepening crisis had aroused the top brass to consider whether a solution other than another military
intervention was in sight. General Zia-ul-Haq, the Army Chief,
linally decided that a military take over was the only answer. He struck on July 5, 1977, paving'way for the third military regime of Pakistan. The coup also ignored the provisions
88
Reassesslng Pakistan
relating to treason in the prevailing constitution, thereby demonstrating once again the absolute irrelevance of the constitution for the Armed Forces. Military - The Bedrock The military remained the bedrock of Zia's regime, which
marked the longest Martial Law reign (July 1977 to December
he remained President and Chief of Army Staff till his death (August 19BB). Even though a fagade of civilianisation was
created after the withdrawal of Martial Law, a mix of senior
generals and top bureaucrats ruled the country. A large number of military officials were inducted into the governing
system to augment the military's supremacy. National security
policy, particularly that relating to India, Afghanistan and nuclear matters, came under their direct control.
The military's move into a more privileged status continued
with Zia contriving to give it an expanded role as protectors of Pakistan's ideological frontiers and lslamic identity. He felt that Pakistan's creation on the basis of the two-nation theory made them soldiers of lslam with a duty to safeguard the
country from internal and external dangers. The military brass
wanted the concept given a constitutional standing so that it could legitimately participate in decision-making and intervene
in the event of a national crisis. More military officers were diverted to civilian positions of influence under government
RO
that a military government was good for one and all in the military. Besides, the system of placement of military officers
Today the Armed Forces directly control vast commercial and industrial interests also. The Army Fauji Foundation has become the largest industrial group in the country. lt runs schools, colleges, hospitals, and joint ventures with foreign companies. The Army Welfare Centre operates sugar and woollen mills, cement plants, projects in power generation, petrochemicals, aviation, pharmaceuticals, agro sectors, etc.,
financial institutions, insurance companies and a host of small-
of their own which operate separate strings of businesses. Besides, the Ministry of Defence runs many defence
production units like ordnance and arms producing factories,
aeronautical complexes, etc., producing components for aircraft and other material. The Army Chief also has under him many service providing groups like telecommunications, border roads, frontier works, etc. Recently, a new opening was given to the army personnel in WAPDA to oversee power distribution. General Parvez Mushanaf who carried out a military coup against Prime Minister Nawaz Sharif on October
12, lggg has carried out army penetration into civil administration to its utmost limits. There is now an army
90
Reassess/ng Pakistan
(of Ayub, Yahya and Zia) had brought home the reality that
of elective democracy alone ensured. Beg and his top brass were pragmatic enough to accept the limits of possibilities of
growth of political institutions under a military regime and were no longer desirous of asserting military supremacy directly in the governance of the country. The constitutional
processes under the amended (by Zia) 1973 Constitution were
allowed to work but there was never any doubt where power
ensure effective governance. Their own conviction grew that without their monitoring, the turmoil in the polity would remain
uncontrolled. The conference of Corps Commanders became
an important institution within the military, functioning like a politburo, which kept an eagle eye on the economic and political management of the government in power. The Army
Chief emerged as the most important member of the Troika' a term coined to refer to the group of three most powerful personages in Pakistan, the other two being the President and the Prime Minister. The Troika provided a forum for consensus building between civil and military perspectives on all problematic issues facing the decision makers' The
Army Chiefs was always the dominating voice. In the removal
of the four Prime Ministers mentioned earlier, the role of the Army Chief was the most decisive. In this period, two Presidents also had to go, Ghulam lshaqque Khan (1993) and Faroukh Leghari (1998); in their exit too the Army Chief had an important role
The never-ending fragility of the party system created a dilemma for the military leadership. Since the constitution conferred no constitutional role to them to participate in the
exercise of power, they could do so only from the shadows.
92
Reassessing Pakistan
In October 1998 the then Army Ghief, General Jehangir Karamat, with the agreement of the senior commanders mooted a suggestion for the creation of a National Security
Council, backed by competent advisers and a think tank of experts for evolving credible policies to tackle the ongoing
national problems in the political, economic and security zones.
his second term as Prime Minister, with nearly 65 per cent seats in the National Assembly, had become the most powerful
Prime Minister that Pakistan ever had. He had already had a
a Chief Justice of
Pakistan
(Sajjad Ali Shah) and a Chief of Staff (Navy) quit their offices
for one reason or other. Karamat chose to resign rather than create
Chief. With his successes, like Zulfiqar Ali Bhutto earlier, Nawaz turned to a personalised style of governance, packing
loyalists into key positions. This style took little notice of the ground situation that military sensitiveness had to be factored
an
fourth in Pakistani history. Nawaz's removal once again demonstrated that the military would not tolerate any compromise with what it saw as its legitimate domain of
supervening interests.
Today the corporate and institutional interests of the military have reached such a peak that any attack on them
from any direction invites an immediate counter-attack by their
top leadership. In a real sense, the military in Pakistan has become ungovernable by the civilians. Three Constitutions,
of 1956, 1962, and 1973, have tried different formulae and political engineering to give democracy to Pakistan,
subordinating the military to civilian instltutions and authority
but each of these got subverted. Under the doctrine of necessity, the military has demonstrated that it accepts no
fetters on its supremacy, no limits to its course of action and no questioning of its judgment. The civilians, therefore, play
second fiddle to the Armed Forces. The military, thus, considers no one within the country as worthy of its respect.
lf at all, it will pay heed only to external operators that control
agencies, like the World Bank and the International Monetary Fund, as Pakistan's economic well being has become highly dependent on the doles it receives from them; or suppliers of arms, nuclear material, etc. This ascendancy now gives the
94
Reassesslng Pakistan
has reservations. The Supreme Court has given Musharraf three years to
restore full constitutional rule and return Pakistan to democracy. This time, a new form of democracy is likely to return, a democracy with a constitutional status given to the
Armed Forces, legitimising their salience into governance and perhaps acknowledging the de facto veto they exercise.
were not ideologically motivated except that the Mohajirs among them chose to serve in Pakistan like other Mohajirs
chose to make the new state their home. The officers in this
class constituted 12 per cent of the whole. Like the other Mohajir class of 1947, they harboured a certain animus against
Hussain "during the mid 1960s and '1970s the social origin of the officer corps shifted towards the petite bourgeoisie in the
urban areas and in the countryside. This shift in the class origins of the officer corps was accompanied by increasing
ideological factionalism in terms of a fundamentalist religious
ethos on the one hand and a liberal left wing ethos on the othe/'.r Two events, Pakistan's defeat in the Bangladesh War
of
look inwards to fathom its causes and generally find solace in the explanations of the obscurantist. Orthodox groups like
the Jamait-e-lslami and the Tabligh Jamaat were thus able to
spread their influence in the Armed Forces. When Zia appeared on the scene, his search for legitimacy drew him towards lslamisation and an organic alignment with political
forces with lslam high on their agenda, Zia allowed lslamic propaganda among the military personnel by such groups
and was even said to have permitted secret Jl cells to be established in the Armed Forces. His decision to send young
officers to the universities to study, where also the
Jl
had
been given a free hand, accentuated their lslamic orientation. Two other factors aided the surge towards such propensities.
The '1979 lranian revolution provided the additional edge to the zeal of such people. The struggle in Afghanistan against the Soviet Union was directed on Pan lslamic lines, creating a sense of lslamic unity. Personnel from the Armed Forces were deeply involved in this struggle and when the Soviets
withdrew finally, the victory was celebrated as a successful Jehad. the technique of which could also be utilised in the
J&K state and elsewhere. Zia was always expressive of his convictions about the salience of lslam in the life and thinking of the soldier. ln a
foreword to Brigadier SK Malik's book, Ihe Koranic Concept
96
Reassessrng Pakistan
of War, he said, "The professional soldier in a Muslim Army, pursuing the goals of a Muslim State, cannot become
'professional' if in all his activities he does not take on 'the colour of Allah"'.'? Dealing with an enemy is thus, not just a professional duty;
Pakistani soldier. lf India is to be identified as an enemy, for professional purposes, Zia's exhortation is to identify India as
Post Zia military leadership has worried over excessive commitment withirt the Armed Forces to lslam distorting objective professionalism while some others worry over
The
or doctor" but must use this (western education) to become "Muslim soldiers, Muslim engineers, Muslim doctors, Muslim officers and Musllm men".3 A secular approach is ruled out forever. lslamic groups such as the Jamait-e-lslami on the other hand want "a joint front of the lslamists and the Armed
Forces against the common enemy of lslam - a coalition of Hindu-Jewish and Western imperialism...." and rail "against
those who want to sideline lslamic officers or belittle the lslamic
the Hindu is the natural enemy. The land of Hindus thus becomes ideologically a land of adversaries, a permanent enemy for its large forces. A conversation with a colonel in
charge of training at a regimental centre reported by Stephen Cohen graphically illustrates this point:
"Q: What do you teach the recruits about potential enemies?
A:
to - Arabia, lran, anywhere - they have taken an oath, that is not a problem, but of course they would go more readily and happily to the other direction. As for the Russians, well, they [the other ranks] would have no hesitation; perhaps fighting the Afghans there would be
some, but against the Russians there will be no hesitation.
with the Hindus. ......"5 Distrust of the Hindu is fundamental and monumental.
For the Pakistani military all Indians are Hindus. The existence
OR
Reassessing Pakistan
more
nuclear power potential for peaceful uses only. is well known. The instinctive Pakistani reaction to it, shaped by
centuries of close association with the Hindu mind from
well known."6
Rigid images about the Hindus had been present in the psyche of so called Muslim martial classes i.e. the Punjabis
and Pathans from pre partition days. They believed themselves
and
Central Asia who had established Muslim rule in India and whom they considered to be superior to the indigenous people
on account of the perceived exaltedness of their religion. The personnel of the Pakistan military on the formation of Pakistan
had carried the baggage of these concepts. The teaching material of military training institutions reflected this. Before the defeats of 1965 and 1971 a general conviction existed that a Pakistani soldier was more than a match to ten or so
Hindu soldiers.
concerns about India. Maoist guerrilla warfare has been studied in the context of Kashmir and the current proxy war
there would seem to be a refinement of some Maoist concepts. Defeats in the 1 965, 1 971 , and 1999 (Kargil) wars have given
rise to a sense of collective hatred in the Armed Forces, which has augmented age-old misjudgements about India.
Generals of today are the captains and majors indoctrinated
controlled outfit, provide an adequate testimony about the military's ultimate intentions. Their target is no longer the
territorial integrity of India; lSl targets its social, religious and cultural integrity as well. The lSl masterminded the guerrilla campaign in Afghanistan against the Soviet Union, forcing it to withdraw. Their trainees of yesteryears are the Taliban of
today, ruling over Afghanistan with an lslamic zeal unmatched
in recent times. Their blueprint for India seeks to wrest Kashmir
out of the Indian Union through a proxy war, destroy its secular
fabric and balkanise its polity. The two-nation theory and the
ideology of lslam have brought Pakistan to a point where destruction of lndia seems to have become the unstated national security doctrine and preoccupation of the ruling
military establishment.
100
Reassessrng Pakistan
The Nuclear Policy In this context, the possession of nuclear weapons by the Pakistani Armed Forces becomes a matter of grave concern
for India. Given their psyche there can be no certainty that they will never be tempted to use these against India, irrespective of the consequences which could follow for
Pakistan. Any scenario can serve as an excuse or be treated
On a number of occasions, Pakistani leadership has demonstrated a propensity towards irrational military behaviour. Kargil was the latest exhibition of such foolhardiness. lt showed that existential deterrence did not operate as a check. On the contrary, the military strategic
planners in Pakistan went by the calculations that the Indian policy of no first use would deter India from crossing the Line
of Control or the international border. This was sheer reckless
nuclear blackmail on the part of Pakistan. Pakistan's nuclear programme is lndia specific. Leaders of that country have not hesitated from saying that they reserve the right of a nuclear
strike against India under certain circumstances and that is why they do not subscribe to the pdnciple of no first use. A
small coterie of people there decides on such issues without
recourse to wider consultations or true understanding of where
Pakistani interests actually lie. lt will be futile to try to analyse what those circumstances might be when a Pakistani nuclear
101
bomb might be launched. Past behaviour, a deep sense of insecurity and the two-nation theory make a rational judgement on Pakistani future behaviour impossible to arrive at. This is
one fit case for the worst-case scenario to determine policy
options
does not try to change this balance, it is built on the geographical realities of the subcontinent.
lf the former Chief of Army Staff, General Karamat is to be believed "no real peace process has ever been started
between lndia and Pakistan which could decide against a military option and in favour of peace."8 This statement
underlines that the Tashkent Declaration, Simla Agreement and Lahore Declaration all stand rubbished in the eyes of the Pakistani military. No wonder Kargil occurred and may recur
again, all because the two-nation theory admits of no solution
Nores
Akmal Hussain: 'Pakistan, The Cisis of the Sfate' p. 208, ed. Asghar Khan 'lslam, Politics and State'.
Stephen Cohen: 'Ihe Pakistan Army',1998 edition, Oxford, Pakistan
Paperbacks, Karachi, p. 86. Abdul Qayyum:'On Striving to be a Muslim', Lahore lslamic book centre, 1978, as quoted by Stephen Cohen, Ihe Pakistan Army, p.
95-96.
Reassesslng Pakistan
lmtiaz Alam: News, Nov. 1 , 2000 as quoted in Pot, November 16, 2O00. o. 4722. Stephen Cohen:
o
p.
The Pakistani case is that the alphabet K in the original concept of Pakistan, to be created on the basis of two-nation theory, had stood for Kashmir and, therefore, it must get included in the territory of Pakistan. However the British Government, at the time of division of India, had not made the principle of two-nation theory applicable to the princely
states. With the lapse of the British paramountcy, the choice before the rulers of these states was to accede either to India
104
Reassessrng Pakistan
by the ruler was the legal cover for the transfer of the sovereignty over the state to India or Pakistan, as the case
might be.
The Maharaja of J&K signed a standstill agreement with Pakistan on August 15, 1947 to preserve the status quo as
it existed till then, pending other arrangements to be finalised.
The Maharaja proposed a similar relationship with India but India wanted time to think it over. Pakistan, meanwhile, had
other plans. lts leadership was aware that the doctrine of two nations had few followers among the Muslims of J&K state
and, therefore, the fact of Kashmir being a Muslim majority area was not compelling enough for the Maharaja to decide
in favour of accession to Pakistan. The standstill agieement
notwithstanding, in the mode of raiders from across the Khyber
Pass in the earlier centuries, Pakistan incited tribals from its Western regions to infiltrate into the state and capture it by force for Pakistan. By October 20, 1947 two thousand tribals had entered Muzaffarabad and by October 27, they were in
Baramulla. The tribal incursion had already made the Maharaja
approach India with an offer of accession so that military support could be made available to the state to fight the infiltrants. The Instrument of Accession was acceoted on October 27, 1947. Since accession came under abnormal
105
circumstances, India on its own offered to settle the question of confirming accession by a reference to the people, after
Kashmir had been cleared of the raiders. lt is to be noted that
this offer was not a legal requirement of accession, which had acquired independent legal validity once the Instrument
of Accession, was accepted by lndia. With accession the J&K
The Indian military was now sent to J&K to drive out the raiders. Some Pakistani soldiers, on leave, were already in
the state fighting along with the raiders but in April 1948, the
Pakistan Government decided formally to introduce their troops
into Kashmir, to take on the lndian troops which had been making headway. Senior Pakistan military officials later claimed that the Pakistan troops fought with great tenacity
since they believed that the two-nation theory had given them
approached the Security Council on January 1, 1948 "to call upon Pakistan to put an end immediately to the giving of such assistance (to the invaders to cross into India), which is an act of aggression against India". Pakistan denied giving assistance and claimed that it was discouraging "the tribal
'106
Reassesslng Pakistan
Pakistan tried to widen the issue, to include all the problems between the two countries, charging India of reservations on partition, genocide and fraudulently bringing about Kashmir's accession to itself. The Security Council established the UN Commission for India and Pakistan (UNCIP) on January 20, 1948 to look into the facts. A commitment was forthcoming from both sides for a plebiscite in Kashmir. However, neither
the Security Council nor the UNCIP took any steps to have
the legality of Kashmir's accession to India examined through
India acquired sovereignty over the state and could have pursued the military option of driving out the invaders. While
accepting the accession, the offer to ascertain the will of the
people was made suo moto. India's Prime Minister, Jawaharlal
Nehru had been an idealist who placed too much faith in the
and could not anticipate that the real issue of Pakistan aggression would never be judged in the Security Council.
107
southwards in the post World War ll period should be countered since the British would eventually be leaving the
subcontinent. They did not think that an India ruled by people
reliable for safeguarding these interests even after the departure of the British. A new state of Pakistan in the North Western part of British India was considered an ideal buffer'
The British, therefore, egged on Jinnah to insist on a Pakistan' Jinnah is quoted as having said that he was offered Pakistan on a platter in 1945.'?This vision of a would-be strategic ally'
after Pakistan was created, perhaps explains why the Security Council, under the influence of Western powers, was reluctant
to come down hard on Pakistan. Eventually, as subsequent events proved, the Western powers did succeed in roping in the countries of the region through the Baghdad Pact and CENTO to create a strong bulwark to contain the USSR' Pakistani Aggression Underplayed Aware of this sympathy, Pakistan's strategy in the UN remained throughout to claim a locus in the administration of
108
Reassesslng Pakistan
tribesmen and Pakistan nationals from it. The first major Security Council resolution on the subject was of April 21,
1948, which directly asked Pakistan to arrange withdrawal of
tribesmen and Pakistani nationals, after which the bulk of Indian troops was also to be withdrawn. The resolution asked
resolution and proposed amendments for stationing of Pakistani troops in all Muslim majority areas of the state and participation of the Azad Kashmir Government, Muslim
Conference and National Conference in equal numbers in the interim government. India found the suggestion for participation
by all groups in the government of the state to be incompatible
with her sovereignty over the state. This suggestion also amounted to recognising the authority of those who were administering the seized parts of the state. India, therefore, rejected the resolution,
When the UNCIP visited Pakistan in July 1948 for the first time, the Pakistan Government informed them about the
entry of Pakistani troops into the state in May in "self defence";
This admission of what constituted formal aggression under international law was not immediately reported to the Security Council or India by the UNCIP even though it amounted to fool-proof confirmatory evidence of India's original complaint of Pakistani aggression. Such partiality for Pakistan became
Relations
09
the hallmark of the Western attitudes throughout the course of Security Council debates on Kashmir and ultimately
convinced lndia that it was futile to expect idealism to be the currency of international relationships. Already Prime Minister Nehru's mind was thinking of a more practical way of dealing with the problem. In one of the meetings with UNCIP in India Nehru indicated that a division of the state between India and
Pakistan could be considered for resolving the problem. Sheikh
think independence was a real option for J&K state and felt holding a plebiscite would prove too difficult. He, therefore,
favoured partition with the Valley and Jammu going to India.3
January
5,
a plebiscite for determining the future of Kashmir. India was to withdraw a bulk of her troops after UNCIP had notified her of vacation of the state by Pakistani forces and tribesmen.
The local authorities in POK were allowed to administer areas
110
Reassessrng Pakistan
was to precede steps for holding the plebiscite. The second resolution established a ceasefire from January 1, 1949. The UNCIP also accepted lndian conditions that the state would retain sovereignty over territories evacuated by Pakistan, no
recognition would be extended to 'Azad Kashmir Government' and Pakistan would not be involved in the holding of plebiscite. India also suggested that methods other than plebiscite could
the state. The Pakistani desire to accept a ceasefire now appeared to have been guided by an assessment that the
Indian military had been able to establish a dominating position
for themselves.
An agreement over the ceasefire line was arrived at a meeting in July 1949 at Karachi. Thereafter, the problems of
disposing of the Azad Kashmir forces, numbering 50,000 quantifying the bulk of Indian troops to be withdrawn and administration of Northern Areas proved insoluble due to
insistence by Pakistan on equality with India following the ceasefire and on simultaneous reduction of forces on the two
111
till today.
Finally, in December 1949 UNCIP reported failure to implement the framework of the resolution of August 1 3, 1948
and suggested arbitration to the Security Council for examining how to bring about demilitarisation on the two sides. General
McNaughton of Canada was appointed the mediator for the purpose on December 17, 1949 but he also reported failure
proposed
demilitarisation in stages on both sides, consistent with requirements for maintenance of security and local law and order. His proposals dealt with Azad Kashmir forces as well as the J&K State Militia. The programme of demilitarisation
was to be applicable to Northern Areas also but its administration was to continue with local authorities. McNaughton's scheme again took little notice of the basic factor of India's complaint, sought to balance India and
Pakistan in Kashmir and ignored the legal weight of India's sovereignty over Kashmir. His propositions on demilitarisation were. therefore, non-starters. Sir Owen Dixon, an Australian jurist, was then appointed the UN representative by the Security Council on April 12, 1950 with a mandate to make appropriate suggestions in all contingencies.
112
Reassessrng Pakistan
the Security Council had not given any such finding but he "was prepared to adopt the view that when the frontier of
Kashmir was crossed on October 20, 1947, it was contrary to
international law and when the units of the Pakistan forces moved into the territory of the state, that too was inconsistent
would seem to be the only way out. He recommended no further course of action by the Security Council leaving it to India and Pakistan to negotiate among themselves a final solution. Both India and Pakistan were not unfavourable to
the idea of partitioning with the fate of the Valley being decided
by a plebiscite but there was wide divergence over the manner
of holding plebiscite.
The Security Council appointed another UN representative,
Dr Frank Graham, a US diplomat, on April 30, 1951 to look into the question of demilitarisation but he also could not get an agreement by the two sides on the quantum of troops or civilian armed forces to be retained on either side of the
ceasefire line. He reported final failure on March 27. 1953.
113
matter following
a new
Pakistan had failed to carry out the obligations flowing from the ban imposed on augmenting military potential in the state.
which they were to cope had tended to change". During debates in the Council which followed his report, Jarring
suggested referring to the International Court of Justice certain
legal aspects of the problem of Kashmir. While India was positive to this approach, Pakistan wanted a political rather
than a judicial consideration and is understood to have used
diplomatic channels to convey to others that the proposal was not a good one.4
114
Reassessrng Pakistan
The Security Council now asked Dr Frank Graham to resume his efforts but nothing worthwhile came out of them
since Graham was not ready to examine who was at fault for non-implementation of the two main resolutions of August
on November 17, 1956, reaffirming that the "State is and. shall be an integral part of the Indian Union." Pakistan had joined in military alliances with the West, making itself a part
of the cold war intrigues. Pakistan had also started flirting
with China. In any case, India had earlier given indications to the Security Council that plebiscite, originally promised, could
not forever remain the only means of ascertaining the wishes
and hereafter for the resolution of the J&K issue a bilateral approach with Pakistan would be considered to be the only acceptable way. lt also became evident that India would not be averse to a solution on the basis of status quo. Apart from Pakistan, a great deal of responsibility lies with the Security Council for failure to give due consideration
44E,
in
1947
. lt should have
whether the forces on the other side of the ceasefire line were phantoms of Pakistan or composed of genuine rebels
against the state" By not examining these major questions, the Security Council, in the final analysis, proved itself to be partisan, tilting towards Pakistan without due legal or factual
basis.
no-war
declaration to Pakistan. lt was rejected on the grounds that no method of settling outstanding issues had accompanied it.
The offer was remade in 1954 and was again turned down
for the same reasons. Ayub Khan, after his military takeover, offered to lndia in May 1959, joint defence of the subcontinent
provided solutions were found for the Kashmir and Indus water
disputes and mutual disarmament was agreed to. ln September 1960, the Indus Water Treaty was signed after
intricate diplomacy by the World Bank. Absence of any two-
nation theory implications in this exercise was certainly a positive element towards its success. Under Western pressure in the post 1962 Indo-China war period, there was a general effort to make some progress on Kashmir. The lndian
proposals centred on partition of the state along the ceasefire
plan
envisaged the Pakistan occupied portion of the Valley and a substantial part of Jammu going to her share. There was thus no meeting point for any progress to be recorded.
116
Reassessrng Pakistan
continuous strident anti India campaign during which threats of a Jehad were a recurring feature. The Dawn of October 6,
1960 had reported a declaration by Ayub Khan that the Pakistani Army would not allow Kashmir to remain unsolved
indefinitely. The crisis in the Rann of Kutch in early 1965 was
Foreign Minister Zulfiqar Ali Bhutto's comment at that time was that Kutch was not a dispute in itself: it was a part of a much bigger issue the heart of which was in the Srinagar Valley. The Kutch issue was settled through a tribunal which
awarded to India on February
1
Actually, the Rann of Kutch episode was part of a larger Pakistani design, codenamed Operation Gibraltar. In August
1965, as in 1947 , a large number of infiltrators who had been
117
had assured lndia of their being not used against India, were put into use in the war. The Indian policy had been declared
compelling Pakistan to abandon its offensive in J&K. The Security Council managed to arrange a ceasefire between
the two countries on September 22, 1965 without Pakistan achieving any of its political objectives behind its invasion of Kashmir. The US stopped its military aid to Pakistan, a
consequence highly negative to the latter's interests. The
political terms of mutual disengagement wer'e discussed under
This affirmation notwithstanding, Pakistan launched a surprise attack on Indian airfields, in 1971. This war proved
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Reassesslng Pakistan
very costly for Pakistan. lt lost its eastern wing, which became
means through bilateral discussions. The agreement specifically mentioned "a final settlement of the problem of
Jammu and Kashmir", through such discussions. lt was tacitly
understood that this framework would govern the ultimate settlement on Kashmir along the ceasefire line but Bhutto,
An India specific nuclear programme was now initiated in Pakistan from which also grew later, a missile development
effort. Militancy in Punjab was encouraged and fomented in the eighties. A new shape was given to insurgency in J&K from 1989. The Simla spirit was thus observed more in the
259
control authority for its strategic forces, did not exist at that
to inform him of the Government's decision to conduct the nuclear tests. The PAEC Chairman went back to his office
and gave orders.to his staff to prepare for the tests and called
PAEC
executives, scientists and engineers. Simultaneously, GHQ and Air Headquarters issued orders to the relevant quarters
in 12 Corps, Quetta, the National Logistics Cell (NLC) the Army Aviation Corps and No. 6 (Air Transport Support) Squadron at Chaklala Air Base respectively to extend the necessary support to the PAEC in this regard. The Civil Aviation Authority (CAA) also directed the national airline, PlA, io make available a Boeing 737 passenger aircraft at short notice for the ferrying of PAEC officials, scientists, engineers and technicians to Baluchistan.
260
Reassessrno Pakistan
When news reached Dr AQ Khan at KRL that the task had been assigned to PAEC, he lodged a strong protest with the Chief of the Army Staff, General Jehangir Karamat. The Army Chief, in turn, called the Prime Minister. Amongst the
two, it was decided that KRL personnel would also be involved
in the nuclear test preparations and present at the time of testing alongside those of the PAEC.
In the meantime, PAEC convened a meeting to decide the modus operandi, quantity and size of the nuclear tests to
be conducted. This meeting was chaired by Dr lshfaq Ahmed
and attended by Dr Samar Mubarakmand and other highranking executives, scientists and engineers of the PAEC. lt
was decided that since the Indian nuclear tests had presented
Pakistan with an opportunity to conduct nuclear tests for the first time after 14 years of having conducted only cold tests, the maximum benefit should be derived from this opportunity.
It
mechanisms. Since the five vertical shaft tunnels at Ras Koh Hills and the single horizontal shaft tunnel at Kharan had the capability to collectively host a total of six tests, therefore, it
tol
operation also got under way with the help of the Pakistan Army and Air Force. This operation involved moving men and equipment as well as the nuclear devices to the Chagai test sites from various parts of the country.
On 19 May 1998, two teams comprising of 140 PAEC scientists, engineers and technicians left for Chagai,
Baluchistan on two separate PIA Boeing 737 flights. Also on board were teams from the Wah Group' the Theoretical Group,
members of the Special Services Group (SSG), the elite commando force of the Pakistan Army.
The nuclear devices were themselves flown in completely
knocked down (KD) sub-assembly form on two flights of Pakistan Air Force C-130 Hercules tactical transport aircraft from Rawalpindi to Chagai, escorted even within Pakistani airspace by four PAF F-16s armed with air{o-air missiles. At the same time, PAF F-7MP air defence fighters, also armed with air-to-air missiles, were on Combat Air Patrol (CAP) guarding the aerial frontiers of Pakistan against intruders.
Both the nuclear devices (the bomb mechanism, the HMX explosive shields and casing) and the fissile material (the highly enriched uranium components) were divided into two consignments and flown separately on two independent flights
of the Hercules. The PAEC did not want to put all its nuclear eggs in one basket in case something adverse was to happen
262
Reassessrng Pakistan
fissile
material was so strict that that PAF F-16 escort pilots had been secretly given standing orders that in the unlikely event
Pakistani
airspace, they were to shoot down the aircraft before it left Pakistan's airspace. The F-16s were ordered to escort the C-
130 at a designated airfield in Baluchistan with their radio communications equipment turned off so that no orders, in
the interim, could be conveyed to them to act othenarise. They
were also ordered to ignore any orders to the contrary that got through to them during the duration of the flight even if such orders originated from Air Headquarters.
Once in Chagai, the sub-assembled parts of the nuclear devices were carefully offloaded from the aircraft and were
separately taken in their sub-assembled form to the five 'Zero
Rooms' in the kilometre long tunnels at Ras Koh Hills in Chagai. Dr Samar Mubarakmand personally supervised the complete assembly of all five nuclear devices. Diagnostic cables were thereafter laid from the tunnel to the telemetry.
The cables connected all five nuclear devices with a command
complete
and
On 25 May 1998, soldiers of the Pakistan Army 12 Corps arrived to seal the tunnel. They were supervised by engineers
and technicians from the Pakistan Army Engineering Corps' the Frontier Works Organisation (FWO) and the Special
himself Development Works (SD\A/). Dr Samar Mubarakmand walked a total of 5 kilometres back and forth in the hot tunnels
checking and re-checking the devices and the cables which would be forever buried under the concrete' Finally, the cables were plugged into nuclear devices. The process of the sealing
the tunnel thereafter began with the mixing of the cement and
the sand and their pouring into the tunnels' lt took a total of 6,000 cement bags to seal the tunnel and twice the amount
of sand. The tunnels were sealed and plugged by the afternoon 26 May 1998 and by the afternoon ot 27 May 1998, the cement had completely dried out due to the excessive heat of the desert. After the engineers certified that the concrete had hardened and the site was fit for the tests it was
communicated to the Prime Minister via the GHQ that the site
was ready.
The date and time for Pakistan's rendezvous with destiny was set for 3:00 p.m. to the afternoon of 28 May 1998'
Pakistan's'Finest Hour'
28 May 1998 dawned with an air alert over all military and
strategic installations of Pakistan. The Pakistan Air Force had earlier been put on red alert to respond to the remote but real
264
Reassessrnq pakistan
nuclear installations. Pakistan thought it fit to be safe rather than sorry. PAF F-16A and F-7Mp air defence fighters were scrambled from air bases around the country to remain vigilant
Ten members of the team reached the Observation post (OP) located 10 kilometres away from Ground Zero. The firing equipment was checked for one last time at 1:30 p.m. and prayers were offered. An hour later, at 2:30 p.m., a batile_
camouflaged Pakistan Army Aviation Mil Mi-g helicopter carrying the team of observers including pAEC Chairman, Dr lshfaq Ahmed, KRL Director, Dr Ae Khan, and four other scientists from KRL including Dr Fakhr Hashmi. Dr Javed
Ashraf Mirza, Dr M Nasim Khan and S Mansoor Ahmed arrived at the site. Also accompanying them was a pakistan Army
team headed by Lieutenant General Zulfikar Ali, Chief of the Comb Division
265
At 3:00 p.m, a truck carrying the last lot of the personnel and soldiers involved in the site preparations passed by the
OP. Soon afterwards, the all-clear was given to conduct the
Arshad, the Chief Scientific Officer, who had designed the triggering mechanism, was selected to push the button. He
was asked to recite 'All Praise be to Allah' and oush the button. At exactiy 3:16 p.m. Pakistan Standard Time (PST),
the button was pushed and Muhammad Arshad stepped from obscurity into history.
the same time bypassing, one after the other, each of the
security systems put in place to prevent accidental detonation. Each step was confirmed by the computer, switching on power
supplies for each stage. On the last leg of the sequence, the
high voltage power supply responsible for detonatlng the nuclear devices was activated.
each and every step was being recorded by the computer via the telemetry which is an apparatus for recording readings of
an instrument and transmitting them via radio. A radiationhardened television camera with soecial lenses recorded the outer surface of the mountain.
zoo
Reassessrng Pakistan
The high voltage electrical power wave simultaneously reached the triggers in all the explosive HMX lenses on all
five devices with microsecond synchronisation.
A short while after the button was pushed, the earth in and around the Ras Koh Hills trembled. The OP vibrated.
Smoke and dust burst out through the five points where the
nuclear devices were buried. The mountain shook and changed colour as the dust from thousands of years was
dislodged from its surface. lts black granite rock turning white as de-oxidisation occurred from the fierce radioactive nuclear forces operating from within. A huge cloud of beige dust then envelooed the mountain.
In the OP, shouts of 'Nara-e-Takbeer!' and 'Allah-o-Akbar!'
(God is Great) went up. The time-frame, from the moment when the button was
oushed to the moment the detonations inside the mountain took place, was thirty seconds. For those in the OP, watching
was the moment of truth and triumph against heavy odds, trials and tribulations. At the end of those thirty seconds lay
Pakistan's date with destinv.
267
The Pakistani Ministry of Foreign Affairs would later describe it as 'Pakistan's finest hour'. Pakistan had become
the world's 7th nuclear power and the flrst nuclear weapons
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41
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'
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'
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157
274
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14,
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43
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275
J&K, Maharaja of. 104 J&K. 16, 55, 56, 66, 95, 104, 105, 110
131
114, 117
115,
Jamait-e-lslami (Jl). 14, 27, 30, 60, 63, 72, 95,96, 122, 123,
148
Khan, President
Ghulam
qR
Jinnah, Fatima. 68
Jinnah, Mohammed Ali. 14,24 -
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, 101 , 121
Lahore Resolution. 25, 26, 50, Kahuta. 135, 138 Kanupp. 135 Karamat, General Jehangir. 92,
101
Kargil. 99, 100, 120, 121,139 Kashmir. 16, 19, 30, 31, 77, 83, 99, 101,103, 104, 109, 111124, 139, 153
155
276 Malaysia.
Reassessrng Pakistan
130 95
Markaz-e-Dawah-ul-lrshad
(MDt). 122, 123 'Maudoodi, Amir Abul Ala. 27, 28, 60, 61,
73
0
Objectives Resolution 1949. 62,
63, 73,
81
Omar, Mullah. 77 Operation Brasstacks. 138 Operation Gibraltar. 116 Osama bln Laden. 136
General
82 46 14, 54
Pagara, Pir. 63
55
Muridke.
76,77,
157
Muslim Bomb.
42
- 48,52,
65,
PLA. 122
Plebiscite. 106,108,110,
12,
N
National Conference. 56, Nehru, Jawahar
153
Prithvi. 1 37
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151
277
Sir Creek.
127
Soviet Union. 13, 76, 99' 107' 135' 144, 147 Sri Lanka.
Stalin. 62
21
'
133
P
Radcliffe Award.
66 86 38
Sunnah. 74
T
Tagore, Rabindranath. 69
S
SMRC.
SAPTA.
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Saeed, Mohammed.
101,117' 151
Thapar, Romila. 35 Todarmal, Raja. 36
ULFA. 122
&
118,
151
slPRt. 131, 132
278
Reassessrng Pakistan
41 140