INDIA'S FOREIGN RELATIONS reflect a traditional policy of nonalignment (see Glossary), the exigencies of domestic economic reform and development, and the changing post-Cold War international environment. India's relations with the world have evolved considerably since the British colonial period (1757-1947), when a foreign power monopolized external relations and defense relations. On independence in 1947, few Indians had experience in making or conducting foreign policy. However, the country's oldest political party, the Indian National Congress (the Congress--see Glossary), had established a small foreign department in 1925 to make overseas contacts and to publicize its freedom struggle. From the late 1920s on, Jawaharlal Nehru, who had the most long-standing interest in world affairs among independence leaders, formulated the Congress stance on international issues. As a member of the interim government in 1946, Nehru articulated India's approach to the world.
During Nehru's tenure as prime minister (1947-64), he achieved a domestic consensus on the definition of Indian national interests and foreign policy goals--building a unified and integrated nation-state based on secular, democratic principles; defending Indian territory and protecting its security interests; guaranteeing India's independence internationally through nonalignment; and promoting national economic development unencumbered by overreliance on any country or group of countries. These objectives were closely related to the determinants of India's foreign relations: the historical legacy of South Asia; India's geopolitical position and security requirements; and India's economic needs as a large developing nation. From 1947 until the late 1980s, New Delhi's foreign policy goals enabled it to achieve some successes in carving out an independent international role. Regionally, India was the predominant power because of its size, its population (the world's second-largest after China), and its growing military strength. However, relations with its neighbors, Pakistan in particular, were often tense and fraught with conflict. In addition, globally India's nonaligned stance was not a viable substitute for the political and economic role it wished to play.
India's international influence varied over the years after independence. Indian prestige and moral authority were high in the 1950s and facilitated the acquisition of developmental assistance from both East and West. Although the prestige stemmed from India's nonaligned stance, the nation was unable to prevent Cold War politics from becoming intertwined with interstate relations in South Asia. In the 1960s and 1970s, New Delhi's international position among developed and developing countries faded in the course of wars with China and Pakistan, disputes with other countries in South Asia, and India's attempt to balance Pakistan's support from the United States and China by signing the Treaty of Peace, Friendship, and Cooperation with the Soviet Union in August 1971. Although India obtained substantial Soviet military and economic aid, which helped to strengthen the nation, India's influence was undercut regionally and internationally by the perception that its friendship with the Soviet Union prevented a more forthright condemnation of the Soviet presence in Afghanistan. In the 1980s, New Delhi improved relations with the United States, other developed countries, and China while continuing close ties with the Soviet Union. Relations with its South Asian neighbors, especially Pakistan, Sri Lanka, and Nepal, occupied much of the energies of the Ministry of External Affairs.
In the 1990s, India's economic problems and the demise of the bipolar world political system have forced New Delhi to reassess its foreign policy and to adjust its foreign relations. Previous policies proved inadequate to cope with the serious domestic and international problems facing India. The end of the Cold War gutted the core meaning of nonalignment and left Indian foreign policy without significant direction. The hard, pragmatic considerations of the early 1990s were still viewed within the nonaligned framework of the past, but the disintegration of the Soviet Union removed much of India's international leverage, for which relations with Russia and the other post-Soviet states could not compensate.
Pragmatic security, economic considerations, and domestic political influences have reinforced New Delhi's reliance on the United States and other developed countries; caused New Delhi to abandon its anti-Israeli policy in the Middle East; and resulted in the courtship of the Central Asian republics and the newly industrializing economies of East and Southeast Asia. Although India shares the concerns of Russia, China, and many members of the Nonaligned Movement (see Glossary) about the preeminent position of the United States and other developed countries, different national interests and perceptions make it improbable that India can turn cooperation with these countries to its advantage on most international issues. Furthermore, although Cold War politics have ceased to be a factor in South Asia, the most intractable problems in India's relations with Pakistan--conflict over Kashmir, support for separatists, and nuclear and ballistic missile programs--still face the two countries.
Role of the Prime Minister
Nehru set the pattern for the formation of Indian foreign policy: a strong personal role for the prime minister but a weak institutional structure. Nehru served concurrently as prime minister and minister of external affairs; he made all major foreign policy decisions himself after consulting with his advisers and then entrusted the conduct of international affairs to senior members of the Indian Foreign Service. His successors continued to exercise considerable control over India's international dealings, although they generally appointed separate ministers of external affairs.
India's second prime minister, Lal Bahadur Shastri (1964-66), expanded the Office of Prime Minister (sometimes called the Prime Minister's Secretariat) and enlarged its powers (see The Executive, ch. 8). By the 1970s, the Office of the Prime Minister had become the de facto coordinator and supraministry of the Indian government. The enhanced role of the office strengthened the prime minister's control over foreign policy making at the expense of the Ministry of External Affairs. Advisers in the office provided channels of information and policy recommendations in addition to those offered by the Ministry of External Affairs. A subordinate part of the office--the Research and Analysis Wing--functioned in ways that significantly expanded the information available to the prime minister and his advisers. The Research and Analysis Wing gathered intelligence, provided intelligence analysis to the Office of the Prime Minister, and conducted covert operations abroad.
The prime minister's control and reliance on personal advisers in the Office of the Prime Minister was particularly strong under the tenures of Indira Gandhi (1966-77 and 1980-84) and her son, Rajiv (1984-89), who succeeded her, and weaker during the periods of coalition governments under Morarji Desai (1977-79), Viswanath Pratap (V.P.) Singh (1989-90), Chandra Shekhar (1990-91), and P.V. Narasimha Rao (starting in June 1991). Although observers find it difficult to determine whether the locus of decision-making authority on any particular issue lies with the Ministry of External Affairs, the Council of Ministers, the Office of the Prime Minister, or the prime minister himself, nevertheless in the 1990s India's prime ministers retain their dominance in the conduct of foreign relations.
Ministry of External Affairs
The Ministry of External Affairs is the governmental body most concerned with foreign affairs, with responsibility for some aspects of foreign policy making, actual implementation of policy, and daily conduct of international relations. The ministry's duties include providing timely information and analysis to the prime minister and minister of external affairs, recommending specific measures when necessary, planning policy for the future, and maintaining communications with foreign missions in New Delhi. In 1994 the ministry administered 149 diplomatic missions abroad, which were staffed largely by members of the Indian Foreign Service. The ministry is headed by the minister of external affairs, who holds cabinet rank and is assisted by a deputy minister and a foreign secretary, and secretaries of state from the Indian Foreign Service.
In 1994 the total cadre strength of the Indian Foreign Service numbered 3,490, of which some 1,890 held posts abroad and 1,600 served at the Ministry of External Affairs headquarters in New Delhi. Members of the Indian Foreign Service are recruited through annual written and oral competitive examinations and come from a great variety of regional, economic, and social backgrounds. The Foreign Service Training Institute provides a wide range of courses for foreign service officers, including a basic professional course, a comprehensive course in diplomacy and international relations for foreign service recruits, a refresher course for commercial representatives, and foreign language training.
The Ministry of External Affairs has thirteen territorial divisions, each covering a large area of the world, such as Eastern Europe and the post-Soviet states, or smaller areas on India's periphery, such as Afghanistan, Iran, and Pakistan. The ministry also has functional divisions dealing with external publicity, protocol, consular affairs, Indians abroad, the United Nations (UN) and other international organizations, and international conferences. Two of the eighteen specialized divisions and units of the ministry are of special note. The Policy Planning and Research Division conducts research and prepares briefs and background papers for top policy makers and ministry officials. The briefs cover wide-ranging issues relating to India's foreign policy and role in the changing international environment, and background papers provide information on issues concerning international developments. The Economic Division has the important task of handling foreign economic relations. This division augments its activities to reflect changes in the government's economic policy and the international economic environment (see Liberalization in the Early 1990s, ch. 6). In 1990 the division established the Economic Coordination Unit to assess the impact on India of the Persian Gulf crisis arising from Iraq's invasion of Kuwait, changes in Eastern Europe and the Soviet Union, and formation of a single market in the European Economic Community (after 1993 the European Union), as well as to promote foreign investment. The Economic Division also runs India's foreign aid programs, including the Indian Technical and Economic Cooperation Programme, the Special Commonwealth African Assistance Programme, and aid to individual developing countries in South Asia and elsewhere. The ministry runs the Indian Council for Cultural Relations, which arranges exhibits, visits, and cultural exchanges with other countries and oversees the activities of foreign cultural centers in India.
The Ministry of External Affairs had a budget of Rs8.8 billion (for value of the rupee--see Glossary) for fiscal year (FY--see Glossary) 1994. The largest single expense was the maintenance of missions abroad: Rs3.8 billion, or close to 44 percent of the ministry's expenditures. Foreign aid totaled Rs1.3 billion, or 15.1 percent of the ministry's expenditures. The single largest recipient--as in most previous years--was Bhutan (Rs690 million), whose government operations and development are heavily subsidized by India.
Other Government Organizations
Besides the Office of the Prime Minister and the Ministry of External Affairs, there are other government agencies that have foreign policy-making roles. In theory, the ministers of defence, commerce, and finance provide input to foreign policy decisions discussed in cabinet meetings, but their influence in practical terms is overshadowed by the predominant position of the prime minister and his advisers. The armed forces are removed from policy making and have influence only through the minister of defence, to whom they are subordinate (see Organization and Equipment of the Armed Forces, ch. 10).
Only a limited role in foreign policy making is provided for India's bicameral Parliament (see The Legislature, ch. 8). Negotiated treaties and international agreements become legally binding on the state but are not part of domestic law unless passed by an act of Parliament, which also has no say in the appointment of diplomats and other government representatives dealing with foreign affairs. For the most part, because of the widespread domestic support for India's foreign policy, Parliament has endorsed government actions or sought information. The most important official link between Parliament and the executive in the mid-1990s is the Committee on External Affairs of the Lok Sabha (House of the People), the lower chamber of Parliament. The committee meets regularly and draws its membership from many parties. Usually it has served either as a forum for government briefings or as a deliberative body.
The Role of Political and Interest Groups
Institutional connections between public opinion and foreign policy making are tenuous in the mid-1990s, as they have been since independence. Although international issues receive considerable attention in the media and in academic circles, the views expressed by journalists and scholars in these publications have little impact on foreign policy making. Interest groups concerned with foreign relations exist inside and outside Parliament but are less organized or articulate than in most other democracies. These organizations include such business groups as the Federation of Indian Chambers of Commerce International; religious groups, especially among Muslims; and various friendship or cultural societies promoting closer ties with specific countries. Among the latter are informal groups known as the "Russian" and "American" lobbies.
Opposition political parties often have more effectively articulated differing views regarding foreign policy, but even these views had little impact on policy making until the 1990s. Other than the Congress (I)--(I for Indira), only the communist parties, the Janata Party, and the Jana Sangh and one of its successors, the Bharatiya Janata Party (BJP--Indian People's Party), developed coherent platforms on foreign policy (see Political Parties, ch. 8). After the mid-1950s, the communist parties were broadly supportive of Indian foreign policy. At the beginning of Janata Party rule (1977-79), Prime Minister Desai promised to return to "genuine nonalignment." However, security considerations forced Desai and his minister of external affairs, Jana Sangh stalwart Atal Behari Vajpayee, to adhere to the foreign policy path carved out by the Congress (I)--nonalignment with a pro-Soviet orientation. BJP foreign policy positions differed most strongly from those of the Congress (I). The BJP criticized nonalignment and advocated a more vigorous use of India's power to defend national interests from erosion at the hands of Pakistan and China. The BJP also favored the overt acquisition of nuclear weapons. By the early 1990s, the rising political fortunes of the BJP had an impact on the conduct of foreign policy, forcing the coalition government of V.P. Singh, which depended on BJP support, to take a hard line in the Kashmir crisis in 1990. Pressure from the Congress (I) also had an impact on India's response to the Persian Gulf crisis (see Middle East; Central Asia, this ch.).
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