By Ravi Agrawal
India has been jolted by the deadliest communal violence in New Delhi in decades. The fighting began on Sunday, Feb. 23—just before U.S. President Donald Trump arrived in the country for meetings with Indian Prime Minister Narendra Modi—and quickly escalated into mass riots, with Hindu mobs targeting Muslim homes in the city’s northeast. At least 45 people were killed—mostly Muslims.
Ashutosh Varshney, a Brown University professor and author of the prize-winning Ethnic Conflict and Civic Life: Hindus and Muslims in India, believes last week’s riots in Delhi bear some of the hallmarks of an organized pogrom. India has been there before: In 2002, in Gujarat, when Modi was the state’s chief minister, more than 1,000 people were killed in religious riots.
Most were Muslims. While Modi was later cleared of wrongdoing by the country’s judiciary, critics say that he could have done much more to prevent the attacks. And in 1984, again in Delhi, an estimated 3,000 Sikhs were targeted and killed after Prime Minister Indira Gandhi was assassinated by her Sikh bodyguards. In both cases, experts say, riots could not have been conducted without some complicity on the part of the police.
Varshney believes last week’s deadly clashes could be repeated in other parts of the country—and that Muslims are particularly vulnerable. Here is a transcript of Foreign Policy’s interview with Varshney, lightly edited for clarity.
Ravi Agrawal: There’s been a bit of debate about whether the violence in Delhi last week should be defined as a riot or as something more serious—a pogrom. Can you explain the difference?
Ashutosh Varshney: Pogroms are a special class of riots when it’s no longer simply a clash between two mobs or groups. Instead, the police are siding with one group either by looking away or by abetting and sometimes even directly participating in the violence. The key difference between riots and pogroms lies in the behavior of the state—through its police. The term was born in tsarist Russia when pogroms were launched against Jews.
RA: Given what we know now, how would you classify the violence in Delhi?
AV: On the first day and night—Sunday, Feb. 23—we saw two mobs going at each other. There were deaths on both sides. But on the second and third day, the partisanship of the police became clear. A mosque, a Muslim shrine, and Muslim homes and shops were attacked. The police did not respond to calls for help. Logs suggest a high volume of those calls came from predominantly Muslim parts of northeast Delhi. But the police failed to show up. Hindu mobs then attacked with abandon.
The second part is more direct participation. There are videos, in particular one which shows young Muslim men being hit by a Hindu mob. And the cops are asking the fallen and beaten Muslim men to sing the national anthem—as they’re being hit. That is quite egregious.
But the more significant evidence thus far is of the police simply looking away and not responding to Muslim pleas for help as homes, places of worship, and commercial enterprises were attacked with impunity. RA: The fact that all of this happened in New Delhi, the capital city of India, is significant. AV: Delhi has a unique structure for police operations.
In every other part of India, the police report to the state government, and not to the central government, because law and order is defined as a state subject by India’s constitution. But Delhi’s police reports to the central government, not to the state government—technically, Delhi is not a full-fledged state.
The fact that the central government is led by the Bharatiya Janata Party (BJP) would therefore make Modi’s government responsible for law and order in Delhi. And the minister of home affairs, Amit Shah, would be the final authority to which Delhi’s police force would report. So the responsibility for the failure to maintain law and order also lies at his door.
RA: Some of the perpetrators of the attacks were heard shouting “Jai Shri Ram,” or “Victory to Lord Ram.” Can you explain the significance of that chant?
AV: “Jai Shri Ram,” theologically speaking, is a celebration of Lord Ram, the Hindu deity known for compassion and considered to be the embodiment of the highest morality and ethics. But in recent Hindu nationalist ideological campaigns, Jai Shri Ram has been weaponized to express muscularity, masculinity, and coercion—as opposed to kindness and compassion.
So, the meaning of Jai Shri Ram has been transformed into a battle cry for the establishment of a Hindu nationalist polity, presided over by a Hindu nationalist state.
RA: Given that you describe last week’s events in Delhi as bearing the hallmarks of the beginning of a pogrom, how severe is the danger of other, similar outbreaks of violence across the country?
AV: The most vulnerable Muslim populations are in BJP-ruled states, because the role of the police is critical—and the police comes under the state government. If BJP governments in various states of India push the police against the Muslims, then only the bravest police officers would resist, because the authority structure is very clear. The danger to Muslim minorities in BJP-ruled states is grave. Uttar Pradesh, India’s largest state with a population of 200 million, seems particularly vulnerable.
Muslims comprise about 18 percent of the population there, and they are spread out all over the state. There was a big riot in Muzaffarnagar in 2013, for example, and the police were nowhere to be seen. UP is also ruled by a politician, Yogi Adityanath, whose anti-Muslim prejudice and fervor is well-known and has been openly displayed.
RA: What can civil society and the media do to prevent outbreaks of violence?
AV: Civil society can be quite important in creating bulwarks of resistance and peace, but that is not something it can do instantly. The creation of inter-religious networks between Hindus and Muslims takes a few years, if not more. The probability of integrated communities coming apart is much lower than the probability of segregated communities coming apart.
A more immediate issue always is how to minimize the extent or the intensity of violence. And that’s where the media plays a key role. By reporting courageously; by condemning what it finds unacceptable and sees as clear violations of norms, rules, and laws; and by creating a narrative of critique, the media can slow down or reduce the intensity of violence. Sometimes the police intervene, too—even without political approval. Legally and constitutionally, the police can step in during moments of crisis. –FP
