Kuldip Nayar: The roadmap which led to Simla accord

Roadmap is the neologism added to the political jargon of conciliation efforts. Therefore, it may be worthwhile to recount how India and Pakistan went about reaching the Simla agreement in June 1972. It may help the two countries hold negotiations.

After 30 years of embargo, the records are now available to tell what transpired between D.P. Dhar, India's representative, and Pakistan's Aziz Ahmed, before the meeting between Indira Gandhi and Zulfikar Ali Bhutto.

The modalities were worked out by the Swiss Embassy which was looking after the affairs of both countries following the snapping of diplomatic ties. How they went about their business is relevant as efforts are afoot to fix the talks between Indian Prime Minister Atal Bihari Vajpayee and Pakistan President Pervez Musharraf.

The first two-day session between DP and Aziz was as calm as the climate in hilly Murree where they met. The discussions were in English - though Dhar wanted to switch over to Urdu to make them more informal. Aziz frankly admitted that even though Urdu was the official language of Pakistan, he for one found it difficult to use, especially in talking to Dhar who, like other Kashmiri pandits, spoke chaste Urdu.

Both of them had different briefs. A durable settlement was on top of the tentative agenda that Dhar carried from New Delhi. But he was specifically directed to include Kashmir in the items for discussion at the summit meeting. From the Pakistan side, Aziz had been told to give top priority to the 90,000 Pakistani POWs and the territory which came under India after the Bangladesh war in December 1971.

In the opening speech itself Aziz talked about the need for a step-by-step approach and also referred to reports in some Delhi newspapers that DP would "demand" recognition of the ceasefire line in Kashmir as the international border.

In reply, Dhar said that the past history of Indo-Pakistan relations should itself indicate that the step-by-step approach had not succeeded and that they could turn over a new leaf by having straightaway a durable peace. He contradicted press reports that he had come to dictate anything.

Aziz said Pakistan's proposals were essentially India's own case in a "capsule form". Dhar said the point to note was whether it kept in view the "total concept". Raza Ali, who was Aziz's aide, said that what India wanted was a "protective umbrella" for the summit meeting while Pakistan was seeking "guidelines for subsequent developments".

Dhar said India was willing to prove its bona fides about seeking a permanent peace with Pakistan by decreasing its defence expenditure. His government would agree to consider a proposal of joint inspection or any other to satisfy Pakistan on this point.

It was Aziz who first gave Dhar a draft agenda:
a) Elimination of the consequences of war - return to peace:
1. Repatriation of POWs and civilians,
2. Withdrawal of forces;
b) Normalisation of relations:
1. Resumption of diplomatic relations,
2. Cessation of hostile propaganda,
3. Restoration of post and telegraph services,
4. Restoration of air and sea links, including over flights,
5. Opening of border posts;
c) Improvement of relations:
1. Resumption of trade,
2. Cultural exchanges;
d) Long-term measures:
1. Ways to solve disputes,
2. Economic co-operation wherever possible,
3. Co-operation as far as possible in international organisations.

Dhar said that the draft had some good points but was lopsided in its priorities. He gave his own draft:
a) Elements of a durable peace:
1. Renunciation of conflict and confrontation and adoption of a policy of ensuring peace, friendship and co-operation,
2. Non-interference in the internal affairs of each other,
3. Settlement of disputes by peaceful means,
4. Non-use of force against the territorial integrity or political independence of each other,
5. Re-affirmation of the obligation arising out of the UN Charter,
6. Inviolability of the frontiers and boundary between India and Pakistan,
7. Prevention of the formation of private armies aimed at subversion of the legally constituted authority of the two countries;
b) Withdrawal of forces and repatriation of prisoners;
c) Normalisation of relations:
1. Resumption of diplomatic relations,
2. Settlement of properties seized by either party during the conflicts of 1965 and 1971,
3. Resumption of air and sea traffic, including over flights,
4. Resumption of postal and telegraph facilities,
5. Opening of border posts,
6. Adequate travelling facilities,
7. Prohibition of hostile propaganda,
8. Promotion of trade and commerce and cooperation in economic matters, and
9. Exchange in fields of science, culture and sports.

Even though there were some common points in the two drafts - Dhar listed them - the priorities were different. No progress seemed possible. DP told Aziz that he would send for the plane and return to India. When Bhutto heard this, he invited DP for a meeting.

Bhutto agreed that a peace settlement should have priority over the POWs and other problems. He thought that a step-by-step approach was the "best one". He concurred with DP's proposal to have a durable peace as the number one item.

When the two came to discuss Kashmir they did not talk about any particular formula. Bhutto only said that the solution should be such as would be acceptable to the people of Kashmir. He promised that he would have detailed talks on Kashmir with Mrs Gandhi at the summit meeting.

Bhutto told DP what Nehru had said to him in November 1961 in London: "Zulfi, I know that we must find a solution for Kashmir. But we have got caught in a situation which we cannot get out of without causing damage to the systems and structures of our respective societies."

DP assured Bhutto that India was anxious to hold negotiations with Pakistan without any loss of time because it had a stake in "the continuance" of Bhutto, an elected leader, in office and in the integrity of Pakistan.

"We do not want you to fail and get another Yahya Khan (martial law chief during the Bangladesh war) or any other military man," added Dhar. He also said that India honestly believed that a weak Pakistan would be a danger to India's security, but added that first things must come first.

The document the two signed to facilitate a meeting between Indira Gandhi and Bhutto enunciated 10 principles which would govern the talks. They were:
1. Need to normalise relations.
2. Willingness to think afresh, casting aside the shackles of past policies.
3. Recognition of the underlying desire of peoples in both countries for peace and harmony in the subcontinent.
4. Need for establishment of durable peace.
5. Need for ending military conflict, and starting a new chapter of good neighbourliness.
6. Desirability of diverting resources towards development.
7. Necessity that the summit should not fail.
8. Cooperation in other agreed fields.
9. Desirability of adequate travel facilities to both sides.
10. Cessation of hostile propaganda.

Kashmir as such was never discussed between the two sides. However, Dhar wrote a lette