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Heartburn over Hugs and Hummus

10 Monday Jul 2017

Posted by in India, Israel, Middle East, Opinion and Response, South Asia

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Indo-Israeli relations have been all hugs and hummus of late, a point that neither Jerusalem nor Delhi seem to be tired of reiterating. Narendra Modi’s trip to Israel without even a perfunctory drop-in at Ramallah has been portrayed as historic by most observers, although there have been some doubts about how much of a departure this really is from India’s previous policy given the three-day visit by Palestinian Authority President Mahmoud Abbas just a couple of weeks earlier.

Whether there really is a shift in Indian policy or not, the perception certainly exists that there has been one and this has caused much heartburn among the ossified grand daddies of entrenched interests. The crux of a string of critiques that have appeared in the Indian press is that the Modi government has made the morally odious choice of abandoning Palestine and in doing so descended into the realm of ordinary states, and that this desertion is but another manifestation of the prime minister’s anti-Muslim Hindu nationalism that has found resonance in Israeli prime minister Benjamin Netanyahu’s equally anti-Islamic Zionism.

In Foreign Affairs, Michal Ben-Josef Hirsch and Manjari Chatterjee Miller argue that “India’s and Israel’s historic perceptions of colonial ideology and religious nationalism are at the root of their longstanding divergence.” According to them, India’s experience as a colony and of bloody Partition created in Indian leaders an aversion to colonialism and religious nationalism; Jewish ambitions in the Levant was, therefore, anathema to them on both counts.

Although Hirsch and Miller are correct in how the Congress leadership viewed Israel and this view did shape Indian policy towards the Jewish state for decades, their article does not grapple with the fact that this was a highly ignorant and erroneous held by Mohandas Gandhi and Jawaharlal Nehru. To denounce Zionism as a “child of British imperialism” as Nehru did is laughable, and Gandhi admitted to some of his interlocutors sent by the Jewish Agency to inform and persuade the Indian leader of their worthiness of their cause that he did not know enough about Jewish history. Gandhi thought that Israel was being created “under the shadow of the British gun,” a sentiment difficult to arrive at despite the infamous Balfour Declaration of 1917. His simplification of “Palestine for the Arabs” also indicates a severe lack of understanding of the convoluted history of the Levant.

Today, whatever else may motivate the Bharatiya Janata Party’s course correction, it also reflects an acknowledgement of these mistaken views. Old dilemmata over identity will not, contrary to what the article argues, hinder relations but more mundane aspects of economics, regulations, and logistics take time to be streamlined. Additionally, the focus on non-defence matters was a deliberate move by both governments to highlight the civilisation-to-civilisation connections being fostered rather than a purely transactional one – which has been blooming on the sidelines, too.

A churlish piece by Manini Chatterjee in The Telegraph betrays ignorance of Israeli culture as well as any deep engagement with European history or political philosophy. Playing on the tired trope of ethnonationalism, Chatterjee wants to draw attention to the “fusion of religious and cultural identity with a ‘holy’ geographical entity common to both Hindutva and Zionism.” This has, in fact, spared the world of the limitless expansion of more universalist (imperialist) creeds. Chatterjee also takes a swipe at MS Golwalkar for his racial weltanshauung. However, it bears note that Golwalker’s understanding of race was substantially different from the European definition and that Zionism did grow as a response to the liberal European project that sought to dilute and destroy Jewish identity. Instead, Chatterjee prefers to further the myth – as the Dreyfus Affair proved – of civic nationalism.

Rajeesh Kumar’s plea that foreign policy be based on principles rather than on interests (though he sees the two as coterminous) in Outlook is naive at best. His attempt to rescue Nehruvian thinking on Israel, however, is an exceptional attempt at fiction writing. His claim that “India’s support to the Palestinian cause was not determined by the policy of appeasing the Muslim minority population at home” falls flat simply by virtue of Nehru’s own words to the effect that he did not wish to vex Indian Muslims so soon after Partition by cosying up to the Jewish state. Kumar does not explain how Indian policy was pragmatic and not idealistic as he claims but goes on to make another incredulous argument that Israel must be seen as India’s junior partner because of its desire to help the South Asian nation despite being rebuked so often. While Kumar’s point raises an interesting point for further research into Israeli attitudes and thinking towards India, the casting of the receiver of aid as the senior partner is bewildering.

There is no denying of the benefits of better relations with Israel for Kumar, though he warns that this should not mean that India should give Tel Aviv (?) a blank cheque. Kumar’s solution is to extract benefits from Israel via trade and scientific cooperation yet continue to condemn it as has been India’s hypocritical custom in the past. Given Indo-Israeli history, Kumar’s suggestion might work but it will not foster warmer relations.

Finally, he appeals to dharma as a guiding principle of Indian culture and policy. That dharma is not constant but depends on place, time, and situation is entirely lost on Kumar. In a specific circumstance, Krishna advises the Pandavas to go to war even against their own kith and kin. Additionally, Kumar’s appeal to ethics, while noble, has served no purpose in the past. India’s bid to join the Organisation of Islamic Cooperation as a country with one of the highest Muslim populations was rejected and Arab states have historically sided with Pakistan politically as well as economically and militarily in its conflict with India.

Gopalkrishna Gandhi tries to resurrect the flawed Indian historical understanding of yesteryear in his article in The Wire. Amusingly, he states that “India’s position has been appreciated, respected by all for its honesty and integrity,” probably referring to only Arab states and the coterie of non-aligned irrelevants. He clings to the old custom of Indian prime ministers abstaining from visiting Israel on principle without addressing the errors of the past or the changes since in the geopolitical climate. Ignoring his preposterous claims of a Palestinian genocide in 1948 for the moment, Gandhi fails to explain why Palestine ought to matter more to Delhi than its own interests. In his selective history, he omits the Egyptian wall along its border with Gaza or the Jordanian action against Palestinians during Black September, not to mention the occupation of “Palestine” by Jordan and Egypt prior to the stunning Israeli victory in the Six-Day War in 1967.

Modi’s visit, according Gandhi, gives legitimacy to the “occupation and brutal suppression” of Palestinians by Israel. This conveniently overlooks the Indian statement of support for the Palestinian cause just two weeks ahead of Modi’s trip to Israel. Gandhi goes on to argue that India’s policy now is “wholly political, ideological,” implying, one only assumes from the tone, what his cohort has expressed more explicitly about the BJP being anti-Muslim. This ever-ready, lazy label may have some superficial truth to it but ignores a strong undercurrent of historical grievances and political minoritarian discrimination that has now run its fuse.

It is not so much that the caviling is premised on faulty understandings of Hindutva, Zionism, and the Palestinian Question – sometimes by Gandhi or Nehru – but its ornery nature that makes any genuine debate moot. Nehru’s fundamental failure was that he, as a modern Liberal, approached society – India – as tabula rasa upon which he could put down his doodles. Communities, however, do not work like that – they are a brown field project with all its attendant baggage. More importantly, the debate never moves forward because opponents of Israel in India never tire of repeating their worn out and fallacious mantras rather than responding to a counter that has been put forward decades ago. In this climate, there is no argument – only an attempt to overpower the public sphere by sheer volume.

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Counter-force Mountains Out of NFU Molehills

22 Wednesday Mar 2017

Posted by in India, Nuclear, Opinion and Response, South Asia

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There have again been speculations recently about India’s nuclear doctrine and the value of its no first-use-posture. The reason for the kerfuffle this time are a couple of sentences in former National Security Advisor Shivshankar Menon’s book, Choices: Inside the Making of Indian Foreign Policy. Menon writes,

There is a potential grey area as to when India would use nuclear weapons first against another NWS (nuclear weapons state). Circumstances are conceivable in which India might find it useful to strike first, for instance, against an NWS that had declared it would certainly use its weapons, and if India were certain that adversary’s launch was imminent.

This has been interpreted to mean that India’s no-first-use posture is not credible, which would implicitly exonerate Delhi from the charge – if it is made – that it has quietly changed its nuclear doctrine. Instead, this understanding of Menon’s words suggests that the Indian no-first-use policy was a sham from the very beginning.

Menon also writes,

…proportional responses and deterrence were not the preferred posture in the initial stages of the weapons program, for it might tempt adversaries to test the space available below the threshold for full nuclear retaliation… Instead, the logical posture at first was counter-value targeting, or targeting the opponent’s assets, rather than counter-force targeting, which concentrates on the enemy’s military and command structures.

Here, the object of interrogation is the past tense (emphasis mine) that Menon uses; does he mean to indicate that India initially settled for a massive retaliation against an enemy’s cities but later may have surreptitiously modified its doctrine as its weapons systems became more sophisticated in terms of detection and destruction? However, the context of his objectionable grammar is the historical evolution of Indian nuclear thinking from the mid-1980s. Menon is talking about the inter-test years (1974-1998) when India had not publicly weaponised its peaceful nuclear explosion and therefore obviated the need for a nuclear doctrine.

However, the former NSA is not nuclear-shy once red lines have been crossed. As he explains the rationale,

There would be little incentive, once Pakistan had taken hostilities to the nuclear level, for India to limit its response, since that would only invite further escalation by Pakistan. India would hardly risk giving Pakistan the chance to carry out a massive nuclear strike after the Indian response to Pakistan using tactical nuclear weapons. In other worlds, Pakistani tactical nuclear weapon use would effectively free India to undertake a comprehensive first strike against Pakistan.

Essentially, under India’s massive retaliation strategy, military as well as civilian targets would be considered. A purely counter-value massive retaliation by Delhi would leave Pakistan’s nuclear arsenal intact and capable of raining nuclear fire on Indian cities. The sudden realisation that the Indian military could potentially go after Pakistani nuclear assets as well as its infrastructure has caused a bit of a stir in some circles.

There are several problems with this sudden alarmist tone. The most obvious is that this is not a new observation. Aside from the fact that scholars have gleaned every nuance out of India’s nuclear policy already, the doctrine itself – what is publicly available – specifically states that its retaliation only policy is dynamic. In the words of the National Security Advisory Board,

India shall pursue a doctrine of credible minimum nuclear deterrence. In this policy of “retaliation only”, the survivability of our arsenal is critical. This is a dynamic concept related to the strategic environment, technological imperatives and the needs of national security. The actual size components, deployment and employment of nuclear forces will be decided in the light of these factors.

India’s policy is clearly stated to be to only retaliatory, which is again emphasised in the next section: “India will not be the first to initiate a nuclear strike, but will respond with punitive retaliation should deterrence fail.” Nonetheless, this position is dynamic in that it is conceivable that imminent use of nuclear weapons against India – fuelling of missiles, field deployment of tactical nuclear weapons, delegation of launch authority – especially from a state that has repeatedly declared a willingness, almost an eagerness, to strike first with nuclear weapons, will be treated as an attack and liable for Indian retaliation. As many Indian strategists have wondered, what is the morality of awaiting certain destruction just to satisfy a dictionary definition of no-first-use?

Such use – anticipatory self defence – may not be to the satisfaction of semanticists but is nonetheless considered just under international law if it fulfills the criteria of the Caroline rule: instant, overwhelming, leaving no choice of means, and no moment for deliberation. Thus, as Menon himself noted, more flexibility – ambiguity? – has been built into the Indian nuclear doctrine than is realised. As a side note, it is interesting that the same Caroline rule that bears out Indian views on nuclear strikes objects to the dilution of NFU by extending it to chemical or biological weapons as India and other nuclear states have done.

The composition of India’s nuclear arsenal and its status should belie any fears about preemptive counter-force targetting. Most nuclear observers agree that the Indian arsenal is still rudimentary compared to mature nuclear states such as the United States, France, or China. By the benchmarks of those in whose footsteps it follows, India has conducted far fewer (hot) tests to confirm design parameters that would affect miniaturisation, maximise yield, or assure successful detonation in unconventional circumstances to be capable of precise, proportionate strikes. Although the exact composition of the Indian arsenal is classified, the mainstay may be assumed to be improved versions of its 1974 prototype that was tested again in 1998, a ~15 kT Hiroshima-style device and hardly an ideal choice for a surgical counter-force strike. The sub-kiloton designs, ideal for mating with the Brahmos missile for tactical strikes, are not as reliable as their larger brother. The real concern, then, and a more familiar one for Indians, is that their bureaucrats and politicians might be promising more than their military can actually deliver.

It is also worth noting that in regions with population density as high as in the Indian subcontinent, it is very difficult to achieve a purely counter-value or counter-force strike. Military bases are almost always near population centres or important infrastructural nodes out of necessity. Even if Delhi’s policy of massive retaliation was purely counter-value, it would inevitably damage or destroy vital military assets. Despite such collateral damage, the doctrine can then hardly be called counter-force. Yet, as the former NSA points out, it would be ludicrous to leave the enemy’s nuclear arsenal intact for the sake of doctrinal purity.

The newly rediscovered ambiguity in the Indian nuclear doctrine may perhaps carry more salience because not only does it come from a former official who had a large role in shaping Delhi’s nuclear policy but in view of certain “personal” comments former defence minister Manohar Parrikar recently made. Speaking at a book launch in Delhi in November 2016, the then defence minister calmly eschewed India’s no-first-use policy although he immediately clarified that there had been no change in government policy. With two former senior officials casting doubt on India’s intentions, should the international community consider Delhi’s NFU to be diluted?

It needs to be stressed that Menon merely explained India’s long-existing doctrine and did not reformulate it. With regard Parrikar’s comments, seen in their entirety, there can be no doubt that Indian nuclear policy has not changed. At most, the former defence minister’s comments indicate that there may be discussions going on in South Block in very small circles on updating India’s nuclear doctrine. Surely, this cannot be a surprise when the Bharatiya Janata Party had even announced its intention to do so in its election manifesto in 2014. Indeed, the present government may change India’s nuclear policy but it is absurd to expect that policies are static and eternal – especially when even nuclear warheads are upgraded.

Some observers have wondered at the opportune timing – the Nuclear Suppliers Group plenary is just around the corner in June – of a sudden panic attack on Indian nuclear no-first-use and counter-force posture. This is unlikely to have been a factor for several reasons: 1. the United States, India’s supporter in the forum with the most clout, does not seem willing to twist arms on India’s behalf as it did in 2008; 2. India has found it difficult to bring into its confidence the several smaller states on the moral high horse; 3. China would be relied upon to veto Indian membership in the consensus-seeking group unless Pakistan were simultaneously admitted. The strategic dimension of NSG membership in South Asia should not be underestimated.

So if not a shift in doctrine, has there been a change in strategy? With improving capabilities, it would be myopic not to expect refinements in strategy. However, none of it – the apprehension about anticipatory self-defence or counter-force targetting – adds up to a new phase in Indian nuclear posture. The nuclear doctrine has long offered these options and at best, India’s material realities might be quietly catching up with its lofty ambitions. No matter, this whole affair has been an exercise in making mountains out of molehills.

This post appeared on FirstPost on March 23, 2017.

Modi’s Visit to the Holy Land

05 Sunday Mar 2017

Posted by in India, Israel, Middle East, South Asia

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The long awaited visit by an Indian prime minister to Israel will finally occur in June or early July as Narendra Modi will head to the Holy Land to celebrate 25 years of full diplomatic relations. Although details about the trip are still closely held, Indian National Security Advisor Ajit Doval is in Israel presently to prepare the ground for Modi’s visit. Doval will be followed by Foreign Secretary S Jaishankar and Minister of State for External Affairs, MJ Akbar, in a run-up to Modi’s visit.

Although there have been plenty of indications over the past two years that India was headed down this road, what is noteworthy about Modi’s trip to the Middle East is that he will visit Israel without a complementary visit to Palestine as has been the custom in the past. Modi is not the first Indian leader to do this: Home Minister Rajnath Singh visited Israel in November 2014 without stopping in Palestine. Yet in its careful diplomatic balancing act, India sent MJ Akbar to Ramallah in November 2016 without the obligatory stopover in Tel Aviv as it now hosts Palestinian president Mahmoud Abbas before Modi’s scheduled trip to Israel. Additionally, Modi has already visited important Arab capitals such as Riyadh, Doha, and Abu Dhabi that signal no rapid shift in Delhi’s policies regarding the region.

The prime minister’s departure from custom has irked many and Palestinian ambassador to India, Adnan Abu Alhaija, has regretted the Indian decision. Domestically too, there is bound to be criticism as the political class is too unimaginative to look beyond a foreign policy whose ossified principles were forged in the quarter century before independence. However, the status quo has not served India and Modi’s gesture indicates that there may be some new thinking at Raisina Hill. Despite criticism of India’s new policy towards Israel under Modi, the prime minister has not actually been bold enough to signal a real shift in policy. Nor is one necessary – the Israeli-Palestinian question is not for South Block to resolve. What is required is that Delhi desist from minor yet constant provocations of Tel Aviv in terms of symbolism and rhetoric.

The fear that a solo visit to Israel by an Indian prime minister would disrupt the fragile regional balance is a bit of self aggrandisement – India has a small footprint in the Middle East and even less in the Fertile Crescent. It does not provide military, economic, or political assistance to either party and is not an important calculation in their politics. While both the Palestinians and Israelis would appreciate Delhi’s added support, they can also live without it without much difficulty. India does not have a Middle East policy to speak of; besides the bland and common goals of promoting national interest, Delhi neither sees itself as a provider to the regional commons nor does it have innovative ideas to resolve the three-quarter-century old imbroglio.

The importance given to the Palestinian question is largely a figment of the Indian imagination. Several states, the United States and China, for example engage with both Israel and Palestine on a footing commensurate with their value to Washington or Beijing and yet maintain healthy relationships with other Arab capitals. There is no reason for India to choose a side. One fear of not doing so is that a pro-Israel position would somehow anger Indian Muslims. This is not entirely unwarranted – the Khilafat Movement is a reminder of how many in India have an eye firmly set on the Middle East. However, treating Israel differently from Palestine does not negate support for an amicable resolution to the Palestinian situation.

There is also an irrational concern that leaning towards Israel may turn off the Arab oil spigot. It is unlikely that Arab nations would engage in such a tit-for-tat over Palestine or they would have to first excommunicate Egypt and Jordan from their brotherhood! With the availability of Iranian oil again and the possibility of US shale, the Arab stranglehold on their black gold has slipped. Furthermore, the Indian economy now is in a far stronger position to weather an oil shock than it was in the 1970s. It is also true that Israel maintains clandestine ties with several of the other Muslim and Arab states and in the aftermath of the Iran nuclear deal, Riyadh and Doha were seen drifting closer towards Tel Aviv themselves.

Another worry is that Arab states may strike back at India by ejecting Indian workers in the Gulf who remit some $33 billion back to India. Such a response would not only be mutually destructive but would also require a high degree of cooperation among the various Arab states. It is not to be overlooked that those states also have labour requirements that cannot be immediately addressed.

On the other hand, India relies on Israel for invaluable security cooperation and the two countries have expanded their partnership into other equally beneficial areas such as agriculture and high-tech trade. It makes little sense to jeopardise such an important relationship by antagonising Tel Aviv with ineffectual moral harangues in international fora or a misplaced sense of equivalence between Israelis and the Palestinians. There is no need to hyphenate the two countries. Indeed, India has itself struggled with the United States to dehyphenate itself from Pakistan and Delhi would not take it kindly if every US leader that visited India stopped by in Pakistan as well. Israel would hardly feel differently.

While much is being made of Modi’s visit as a departure from tradition, the balancing act the Bharatiya Janata Party continues to play belies this accusation. Rather, Modi has jettisoned empty symbolism in favour of genuine relations – for this trip, with Israel, but potentially both states – that are sustained by mutual worth. This sense of realism may be a welcome first step in India becoming a more mature and engaging partner in its region.