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Chaturanga

~ statecraft, strategy, society, and Σοφíα

Chaturanga

Tag Archives: MEA

A Bad Friend

18 Sat Mar 2017

Posted by Jaideep A. Prabhu in Book Review

≈ Comments Off on A Bad Friend

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Abraham Isaac Kook, Ahad Ha'am, Albert Einstein, All India Khilafat Committee, Arab, Asher Zvi Hirsch Ginsberg, Benjamin Ze'ev Herzl, CENTO, Central Treaty Organisation, Chaim Weizmann, David Ben-Gurion, HaMossad leModiʿin uleTafkidim Meyuḥadim, Henry Polak, Hermann Kallenbach, Immanuel Olsvanger, INC, India, Indian National Congress, Israel, Jawaharlal Nehru, Jew, Khilafat Movement, MEA, Ministry of External Affairs, Mohandas Gandhi, Mossad, Muslim, Muslim League, Narasimha Rao, Nicolas Blarel, Pakistan, Palestine Liberation Organisation, PL 480, PLO, Public Law 480, RAW, Theodor Herzl, Zalman Shazar

The Evolution of India's Israel PolicyBlarel, Nicolas. The Evolution of India’s Israel Policy: Continuity, Change, and Compromise since 1922. Delhi: Oxford University Press, 2015. 428 pp.

India’s relations with Israel have fast emerged, since the end of the Cold War, as among the most important for the South Asian nation. A vital source of arms and intelligence, Jerusalem has become Delhi’s third-largest defence vendor within 25 years of establishing full diplomatic relations. Additionally, India relies on Israeli expertise in agriculture, and trade between the two countries, currently hovering around $5 billion, is expected to double as soon as a free trade agreement in the works in finalised. Despite the strategic value of the Indo-Israeli relationship, it has somehow not been a popular subject of study among academics and policy analysts. Public understanding is mostly shaped by media reports that are, by their very nature, shallow and temporal. In these climes, Nicolas Blarel’s The Evolution of India’s Israel Policy: Continutity, Change, and Compromise since 1922 is a much-needed survey and analysis of relations with one of Delhi’s most valued partners.

Although the partnership between the two almost-twin modern republics now appears to be a natural alliance, their history has been rocky, frustrating, and at times even antagonistic. Instead of beginning at the seemingly obvious chronological markers of Indian independence and the creation of Israel, Blarel recounts his tale from the aftermath of the Balfour declaration in 1917 when Indian opinion on a Jewish state first began to form. It is commonly believed that Indian views on Israel were forged by Mohandas Gandhi and Jawaharlal Nehru and they remained unchanged until Narasimha Rao established full diplomatic relations in 1992. Blarel challenges this notion on two counts – first, that Gandhi had such a profound influence on the foreign policy of independent India, and second, that India’s Israel policy was so inflexible. In fact, Blarel argues, Gandhi and Nehru showed an evolution in their thinking on Israel, as did the foreign policy of independent India.

Gandhi’s first impulse on the Jewish question was to oppose the partition of Palestine.This was informed more by the domestic politics in India at the time than any proper grappling with the issues plaguing the Jewish community. The late 19th century had seen a sudden surge in pan-Islamic sentiment among Indian Muslims and the British victory over the Ottoman Empire in the First World War and the subsequent uncertainty in the fate of the caliphate agitated them. In an effort to win over the Muslim community from the Muslim League and bring them into the fold of the Indian National Congress, Gandhi supported the All India Khilafat Committee in their protest against the British. The Indian nationalist movement thus exploited Muslim concerns over Palestine to forge a united front between Hindus and Muslims in India.

The Jewish Agency was keen on winning the support of Indian nationalists such as Gandhi and Nehru for they believed it would give a political boost to their aspirations. Furthermore, they had also noticed the impact of Indian Muslim sensibilities on British policies in the Middle East. David Ben Gurion and Chaim Weizmann themselves met with and also sent other important Zionists such as Immanuel Olsvanger to meet with Indian leaders to try and convince them of the justness of Jewish demands in Judea. Gandhi was already somewhat aware of the plight of European Jews through his friendship with Hermann Kallenbach, Henry Polak, and others in South Africa yet the Jewish Agency could not win either Nehru or Gandhi over to their side. The reasons, again, were rooted in Indian domestic politics. First, Gandhi did not wish to alienate Indian Muslims whom he perceived to be sympathetic towards the Arabs.

Second, the Indian leader did not accept the precepts of political Zionism. In a letter to Albert Einstein, Gandhi agreed that he could understand the spiritual desire of the Jewish people to return to Palestine but that did not give them any political rights. The Indian leader saw Zionism as a cultural phenomenon as Asher Zvi Hirsch Ginsberg advocated, or a spiritual quest as Abraham Isaac Kook did, but not a political movement as Benjamin Ze’ev Herzl strategised. This was perhaps largely because Gandhi could not accept the argument for a confessional state in the Middle East and oppose a similar claim in India for Pakistan.

Finally, Gandhi could not come to terms with Zionist methods in pursuing their objectives on two counts – he could not condone the violence of the Irgun Tzvai Leumi and the Lohamei Herut Yisrael and he did not like how the Jewish Agency was willing to work with the British when they should have been opposing imperialism. Here, Gandhi did not seem to notice that Jewish support for Britain was largely for self-preservation from Arab mobs that had taken to attacking Jewish settlements with increasing frequency since the early 1920s.

Germany’s persecution of the Jews during World War II did not change Gandhi’s views on a Jewish state. Though he condemned the atrocities perpetrated against the Jewish people in Europe, he did not think they should dispossess others in Palestine for the faults of Europeans. However, perhaps due to the details of the Holocaust becoming widely known, Gandhi seems to have had a slight change of heart in 1946 that is not popularly known. In an interview with American journalist Louis Fischer, the Indian leader agreed that the Jews had a prior claim to the land in the Fertile Crescent but criticised their reliance on imperial powers to achieve their goals. In another interview that same year, Gandhi again agreed that the Jews had a case for a state but had squandered their good will and support by resorting to terrorist means.

As Blarel points out, Gandhi’s views on Israel did evolve between Khilafat and independence but they did not have too much of an impact on Indian foreign policy. That honour was left to Nehru, whose views were not as similar to his mentor’s as is commonly believed. In principle, Nehru was more supportive of Jewish political aspirations than Gandhi was; he accepted that their immigration into the region had substantially improved standards of living in Palestine and was impressed by Jewish achievements in science, the arts, business, and politics. Like Gandhi, he rejected the religious basis for statehood but rather than define the question in religio-cultural terms, Nehru saw the Palestinian question as a nationalist one rather than a religious one. This gave the Jewish Agency a little more room to manoeuvre but maintained a firm position on the viability of Pakistan.

The Muslim League craftily leveraged the pan-Islamic sentiment of Indian Muslims to pin the Congress into an anti-Zionist corner. They would threaten the British with unrest and the Congress with a fractured nationalist struggle if either sided with the Zionists. This same dynamic carried on post independence as Pakistan tried to build a Muslim coalition around it against India, particularly over Kashmir. In an effort to maintain consistency between its positions on Pakistan and Israel, appease the Muslim community in India, and counter Pakistani propaganda in the Middle East, India slowly slid into the anti-Zionist camp.

These philosophical contortions sometimes meant that India found itself on no one’s side. During the debate in the United Nations over the Mandate, India insisted on a single state in Palestine with two autonomous regions to the frustration of both Arab and Jew! Finally, when the creation of Israel was declared, India waited for two years to extend recognition. However, in an attempt to still be seen as neutral between the two sides, Nehru refused to establish full diplomatic relations with the new state. The Indian prime minister argued that the time was not ripe so soon after the dismemberment of Pakistan from India to vex Indian Muslims by sidling up to the Zionist state. Interestingly, this did not stop him from requesting Israeli assistance in technology and agriculture through the offices of Indian socialists who had maintained good relations with Israeli kibbutzim.

Despite requesting aid from Israel, Nehru and the Congress treated the Jewish state almost like their own untouchable. Israel was allowed to convert a pre-independence office of the Jewish Agency in Bombay into its consulate, though the consul was kept away from any official functions in Delhi. In fact, Delhi reprimanded Tel Aviv and even closed the consulate for six years from 1962-1968 for celebrating Israel’s independence day in a hotel in Delhi. When Israeli president Zalman Shazar requested a halt in India for rest and refuelling on his way to Nepal in March 1966, the Indian government did not allow him to land in Delhi but in Calcutta. Shazar was not even given a five-minute courtesy reception at the airport by either the government of India or of West Bengal.

The Evolution of India’s Israel Policy contends that Delhi was not locked in a Nehruvian mindset on Israel from 1947 until normalisation in 1992 but adapted its policies to suit the circumstances. Blarel argues that Indian policy always reflected realism and was not moralpolitik. India was dependent on the Suez Canal for trade and oil for its economy from the Arab world; the Suez Crisis in 1956 and the Six-Day War in 1967 hurt the Indian economy as the canal was closed for a time during which the cost of Indian exports to Europe and the New World rose between 15 and 35 percent. India hoped that its support of the Palestinian cause would insulate it from economic shocks as well as gain reciprocal support from Arab states for the Indian position on Kashmir and isolate Pakistan in the process.

After Nehru, the evolution of India’s Israel policy was towards greater inflexibility and stridency. As Blarel observes, several things had changed since the end of the Nehru era. Since 1967, Israel had shifted firmly into the American camp and introduced an imperial power into the region; the Palestinian situation became far bleaker after the Six-Day War. In 1975, India co-sponsored a resolution in the United Nations that equated Zionism with racism. In general, much like Indian non-alignment, its Israel policy was veering towards one side.

One major lacuna in The Evolution of India’s Israel Policy is that it does not explain why Israel sought closer ties with India. The reason was obvious before 1948: association with Gandhi, the apostle of non-violence. In the first decade after creation, Israel believed that India’s international influence as the leader of a bloc of newly independent Afro-Asian states would be helpful in gaining recognition from the global community. However, India’s influence waned as its economy failed to grow commensurate to its population and it lost a war against China. In addition to the hostile treatment Israel received in the United Nations as well as bilaterally from India, why did Tel Aviv continue to seek close ties with Delhi?

In fact, Israel’s efforts were commendable – Israel was among the first countries to provide military and medical assistance to India during the Sino-Indian War in 1962, supplying heavy mortars and ammunition. It provided artillery, ammunition, and instructors to India in 1965 during the Second India-Pakistan War, and during the War of Bangladeshi Liberation in 1971, Israel even helped India train the Mukti Bahini. Of course, Delhi did not acknowledge any of this, thanking Tel Aviv only for its medical aid. In 1968, when India established its intelligence service, Research & Analysis Wing, then prime minister Indira Gandhi reached out to Israel’s HaMossad leModiʿin uleTafkidim Meyuḥadim – Mossad – to help train the fledgling service. While Indira Gandhi was whining about US PL 480 food aid being “ship to mouth” in 1966, she had simultaneously rejected Israeli offers of grains to assist India in staving off famine.

While India went to such great lengths to win Arab admiration, it found little to show for its efforts. Most Arab states remained neutral or favoured Pakistan in its wars with India, some even providing arms and ammunition and safe havens for the Pakistani air force from Indian bombardment. When India tried to gain membership to the Organisation of Islamic Countries on the basis of its substantial Muslim population, Pakistan was able to torpedo its application by threatening to walk out of the conference. In an effort to please the Arabs, India had even supported the Arabs in their decision to cut oil production and raise oil prices in 1973.

In the Middle East, India reserved all its moral admonitions for Israel alone. While it criticised Tel Aviv for siding with imperial powers, India did not utter a word of protest when Iraq, Iran, and Turkey joined the Central Treaty Organisation. Delhi’s condemnation of terrorist methods applied only to the Zionists but not the Palestine Liberation Organisation. In fact, India recognised the PLO in 1975, 11 years after its formation and 17 years before it accorded the same status to Israel.

Blarel explains that India found it difficult to change its policy towards Israel not only for strategic and domestic electoral considerations but also because an orthodoxy had materialised in Indian politics and within the Ministry of External Affairs. While strong prime ministers like Nehru and Indira Gandhi could control the MEA, weaker leaders found it more difficult to do so. In that sense, it was a miracle that Rao managed to establish relations with Israel despite ruling over a weak coalition. The strain of recognition was evident from the fact that there was little movement in ties between the two countries for almost a decade thereafter.

The Evolution of India’s Israel Policy is a veritable tour-de-force in an important field that has few scholars. Blarel has assiduously mined the archives, published records, and private collections in India, Israel, and at the United Nations, a task that deserves commendation for the difficulty in doing historical research in India. The result is an magisterial survey and analysis of Indo-Israeli relations over a span of 70 years. The Evolution of India’s Israel Policy is also a wealth of information, containing many nuggets of interesting and sometimes counter-intuitive factoids. For anyone interested in Indian policies towards the Middle East and particularly Israel, this is an unavoidable book.

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India’s Choices

21 Sat Jan 2017

Posted by Jaideep A. Prabhu in Book Review

≈ 2 Comments

Tags

China, diplomacy, foreign policy, India, Inter Services Intelligence, ISI, MEA, Ministry of External Affairs, No First Use, nuclear, Pakistan, Shivshankar Menon, Sri Lanka, terrorism

choicesMenon, Shivshankar. Choices: Inside the Making of Indian Foreign Policy. New Delhi: Penguin Random House, 2016. 224 pp.

Memoirs by retired, senior Indian government officials are an occupational hazard for a historian. On the one hand, they may contain valuable insights or data and offer a peek behind the scenes into the world of policy-making, but on the other, remain the memories and interpretations of one person, usually years after the events. This is true of memoirs everywhere, but what makes them even more perilous in India is the lack of periodically declassified archives. For example, imagine understanding the United States’ role in international affairs through Henry Kissinger’s three-volume memoir.

Shivshankar Menon’s Choices, however, cannot truly be described as a memoir. The book discusses five important decisions India has had to make over the past 25 years, and in each of these, Menon was either intimately involved or at least a senior official in the process. However, the author’s tone is that of a professor than a practitioner. Each of the decisions is placed in its historical context and the rationale for the way things unfolded is broadly explained. Rarely does the reader get the sense that the author was one of the central dramatis personae in what he is reading!

This is not a weakness in itself, but Choices is, unfortunately, very short on the details in terms of the dynamics between the key actors and how the various variables influenced their thinking. How did the decision evolve? What were the hurdles? Whose minds were changed? What were the turf battles? The answers to these sorts of questions come through in government documents and paint a comprehensive picture for historians. Memoirs ought to reveal at least one side of the puzzle, but Menon is reticent on the matter. This could very well be due to India’s secrecy rules, but it still leaves the story incomplete.

The subject matter for Choices is the Border Peace and Tranquility Agreement with China in 1993, civil nuclear cooperation with the United States in 2005, the Pakistani terrorist attack on Bombay in 2008, Delhi’s role in the end of the Sri Lankan civil war, and the rationale behind the nuclear no-first-use policy. Little of what Menon goes over is new to anyone who has followed these events in the newspapers, except to lend a particular line of thought an air of gravitas now that a former foreign secretary and national security advisor is also extending it.

Menon is no hawk on China and in fact thinks that India is entering an era of opportunities with China. As he argues, there are facets to the relationship other than the border. The reason for the delay in settling the border dispute, to Menon’s mind, is that both sides think that time is on their side. For the 1993 accord, the then joint secretary for the North East gives credit to Atal Behari Vajpayee for his many ideas and putting country above party. Regarding China’s present assertiveness, Menon does not believe that encircling China will help; in fact, it will only confirm their worst suspicions, Menon argues, and diminish trust. Similarly, India is too large for China to attempt to encircle.

During the nuclear negotiations with the United States, Menon was foreign secretary. He attributes the willingness of most countries to support India to commercial interests of varying intensity. However, the former foreign secretary has harsh words for the small states with big egos, or the mini-six – Austria, Ireland, the Netherlands, New Zealand, Norway, and Switzerland. These states had no interest in nuclear commerce and had little stake in India anyway; the Nuclear Suppliers Group gave them some importance and that was they stage upon which they could pontificate.

Although Menon had argued for military reprisal in the aftermath of the Bombay attack in 2008, in retrospect, he defends India’s decision to abjure from the use of force and instead seek a diplomatic route. Menon argues that this has been more successful in that Pakistan has been isolated in the international community and India received cooperation from Saudi Arabia, the United Arab Emirates, and Qatar – all Pakistan’s traditional partners. By working through international fora, Delhi was able to bring the heat on Islamabad through Washington, the Europeans, and even its patron, Beijing.

The Israeli model, the former national security advisor opines, has been misquoted in India. It has not brought peace or deterrence to Israel and it will not do so to India. “Mowing the grass,” as the Israelis call it, seeks cumulative deterrence, not absolute deterrence. However, he misunderstands the purpose of Israeli anti-terror operations: they have not been, at least for the past 20 years, for deterrence but for attrition. India’s war against terror is a protracted one and it cannot be solved. Temporary silencing is the best Delhi can hope for, which, according to Menon, is much lower on the list of national priorities than the socioeconomic transformation of India.

Menon is under no illusion that Pakistan continues to be a hotbed of terrorism but he reminds the reader of the more complicated geopolitical web. For example, the United States has restricted India’s access to David Headley, one of the chief reconnoiters for Pakistan’s Inter Services Intelligence. Additionally, when Ahmed Shuja Pasha, then director general of the ISI, visited the United States, he was given diplomatic immunity to protect him from law suits brought against him by the families of Americans killed in Bombay.

Insisting that nuclear weapons are only political signifiers and not meant for war, Menon defends India’s nuclear NFU policy. His defence could interest only a lay reader, unfortunately, for it completely ignores the counter arguments to such a policy. In all fairness, Choices is not a exegesis of nuclear deterrence theory and a thorough explanation would skew the balance of the topics covered. Essentially, the two strands of Indian nuclear thinking, one represented best by General Krishnaswamy Sundarji and the other by nuclear scientist Raja Ramanna, either viewed the super weapons as necessary to redress a conventional imbalance or as an enabler of political goals. The second strand held sway in the discussions after the 1998 nuclear tests.

On the whole, Menon’s view is that Indian nuclear policy is sober and realistic even though it has been couched in moral terms. He is not particularly fond of the international non-proliferation regime either, for it has not addressed any of India’s concerns such as China’s proliferation of nuclear weapons and missile technology to Pakistan or the danger of rogue nuclear actors within the Pakistani Army. However, there is no gain to India by flouting it and staying within earns diplomatic goodwill. This should not be construed to mean that India is a status quo power.

The most interesting part of the book is Menon’s brief airing of his views about India’s place in the world. Despite being taken to task by Bharat Karnad in his Why India Is Not A Great Power (Yet), Menon insists that he does believe that India is destined to become a great power and not by soft power alone. The former foreign secretary does believe that there is a particular Indian style to foreign policy, as Deep Datta-Ray argues, though it is difficult to put a finger on it. Nonetheless, Menon attempts to describe it:

If there is an Indian way in foreign policy, it is marked by a combination of boldness in conception and caution in implementation, by the dominant and determining role of the prime minister, by a didactic negotiating style, by a fundamentally realistic approach masked by normative rhetoric, by comfort in a plural and diverse world or multiverse, and, most consistently, by a consciousness of India’s destiny as a great power.

This caution, Menon allows, could be due to systemic failures – the Ministry of External Affairs is desperately understaffed and centralised foreign policy under the prime minister’s office has meant that no other player has the authority to contemplate on grand strategy or vision. In other words, Indian foreign policy (also) suffers from weak institutions. The structured and formal decison-making is always preceded by considerable informal consultations and discussions. In light of this, it makes sense why an MEA official asked Datta-Ray why he wanted to see their documents since they only indicated process and not thinking.

Interestingly, Menon believes in an Indian exceptionalism and his belief in India’s destiny to become a great power smacks of the same Nehruvian arrogance when contraposed with India’s shortcomings in health, infrastructure, education, society, law, governance, and military. Geography and demographics are necessary but not sufficient conditions of becoming a great power.

All things considered, Choices is a disappointing production given the senior positions in government that its author achieved and the knowledge and experience that must have come with them. Anyone expecting a fresh or insightful exposition of Indian foreign policy will instead find an elegant rehashing of what columnists have already said umpteen times. This is a wasted opportunity to reveal, to scholars and the public alike, how choices are made in the PMO and MEA. Its saving grace is that it reads well and is short.

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Fresh Blood

30 Tue Jun 2015

Posted by Jaideep A. Prabhu in India, South Asia

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archives, diplomacy, IFS, India, Indian Foreign Service, library, MEA, Ministry of External Affairs, PP&RD, Public Policy & Research Division, research

The Indian Ministry of External Affairs put out an announcement yesterday, advertising for consultants for its Policy Planning & Research Division. This followed several articles in the past two years criticising the limited manpower and hence expertise of the Indian Foreign Service and some recent speculation about the expansion of the Service via lateral entry into the cadre. The move has been welcomed by most and it can only be hoped that it is only the first in a series of moves that will revamp and energise India’s foreign affairs circles.

As several India observers have remarked already, the size of the IFS is remarkably small for a nation of India’s size and interests. To be fair, it is only recently that Delhi’s role on the world stage has grown; its growing economy has compelled India to make inroads in trade and security in all corners of the world. Furthermore, it cannot help but be more involved as its northeastern neighbour and rival drags the world’s economic centre of gravity back to Asia. South Block’s holiday during the post-Nehruvian slump years ended in the mid- to late 1990s though little was done to boost its capabilities until now.

The announcement, though a step in the right direction, is a short-term measure and leaves much to be desired. First, the advertisement seeks experts for a period of three years. Given that the hire is not into the IFS cadre, hierarchy and prospects for upward mobility on the job are unclear. Most applicants will therefore treat this as a line entry on their resume or a sabbatical from their “real” job. Such a temporal attitude hardly encourages the development of expertise in a field and the PP&RD will effectively be turned into a long workshop on government procedure and thinking.

Reaching out to domain experts – on regions as well as issues – is an excellent idea but the presumption is usually that this expertise is developed elsewhere and brought in on specific projects. In this manner, the MEA can augment its in-house expertise at will from a large pool of experts in industry and academia. Towards this end, as former foreign secretary Nirupama Rao has suggested most recently, an MEA think tank could be created. This group would be tasked with formulating position papers on a variety of key issues to provide the IFS with immediate expertise. The necessity of consultants would not be obviated because the manpower requirements for a think tank to remain at the forefront of research on all topics the external affairs ministry of a rising regional power  might be interested in would be gargantuan.

The Indian government must also understand that the entire system of consultants and think tanks depends on access to information. Policies have an administrative and political history and it is vital to take this into account as well as the contemporary goals of the state. Declassification of government files would greatly assist in developing foreign policy experts but any move on this front has been in dribs and drabs. For some unfathomable reason, every Indian bureaucrat I have met at home and abroad takes great pride in the state of the National Archives and the declassification process. Perhaps a visit to similar facilities in Germany or Britain may be in order to fully appreciate the capability of national archives and freedom of information.

India’s library collections, even in the metros, are also pitiable. Foreign publications are expensive for the Indian wallet and scholars cannot finance all their intellectual needs out of their own pockets. The sheer volume of research generated every year from even just the top institutions would require the salary of an entertainer or sportstar to keep up with. The development of just one world-class national library in each of India’s four or five largest cities – without borrowing privileges – would immeasurably improve access to international manuscripts and journals. As an example, Harvard University’s library system has approximately 19 million books and an annual operating budget of $160 million.

The MEA fails to realise that – or at least has chosen not to act on it yet – a pool of experts it can consult or develop in-house requires a nurturing environment of sound academic institutions, freedom of information, and access to data. These are the larger infrastructural problems that need to be addressed in the long-term. For now, the lateral hiring is a positive step. Let us hope it will be followed by a full spectrum of reforms and development soon.


This post appeared on FirstPost on July 02, 2015.

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