SHASHI THAROOR
PAX INDICA
India and the World of the 21st Century
Contents
About the Author
Praise for the Book
1 Revisiting the Tryst with Destiny
2 Brother Enemy
3 A Tough Neighbourhood
4 China and India: Competition, Cooperation or Conflict?
5 India’s ‘Near Abroad’: The Arab World and the Rest of Asia
6 Red, White, Blue and Saffron: The United States and India
7 Familiar Lands and Uncharted Territories: Europe, Africa and Latin America
8 The Hard Challenge of Soft Power and Public Diplomacy
9 ‘Eternal Affairs’: The Domestic Underpinnings of Foreign Policy
10 India, the UN and the ‘Global Commons’: The Multilateral Imperative
11 ‘Multi-Alignment’: Towards a ‘Grand Strategy’ for India in the Twenty-first Century
Footnote
10 India, the UN and the ‘Global Commons’: The Multilateral Imperative
Selected Bibliography
Acknowledgements
Follow Penguin
Copyright Page
PENGUIN BOOKS
PAX INDICA
An elected Member of Parliament, former minister of state for external affairs and former under-secretary-general of the United Nations, Shashi Tharoor is the prize-winning author of twelve previous books, both fiction and non-fiction. A widely published critic, commentator and columnist, he served the United Nations during a twenty-nine-year career in refugee work and peacekeeping, at the Secretary-General’s office and heading communications and public information. In 2006 he was India’s candidate to succeed Kofi Annan as UN Secretary-General, and emerged a strong second out of seven contenders. He has won India’s highest honour for overseas Indians, the Pravasi Bharatiya Samman, and numerous literary awards, including a Commonwealth Writers’ Prize.
For more on Shashi Tharoor, please see www.tharoor.in.
Praise for the Book
‘Pax Indica is a great introduction for those interested in reading about India’s foreign policy and its evolution since independence’—DNA
‘[Tharoor’s] view of the world and India’s role in it is hearteningly sane; he has a diplomat’s faith in dialogue and cooperation effecting incremental benefits’—Tehelka
‘A remarkable survey of India’s international interests, covering enormous ground . . . Whatever your own views, Pax Indica will enlarge your understanding, and encourage more attention to our still hesitant and unsure engagement with the world’—K.S. Bajpai
‘A comprehensive dissertation on the diverse fields of India’s endeavours since Independence . . . a timely book, very well written, a must-read for students and professionals alike’—Jaswant Singh
‘This exceptionally lively and well-written survey of India’s international relations challenges preconceptions that foreign policy must be dull’—David Malone
‘Those dreams are for India, but they are also for the world’—Jawaharlal Nehru, ‘Tryst with destiny’ speech, 15 August 1947
As a major power India can and must play a role in helping shape the global order. The international system of the twenty-first century, with its networked partnerships, will need to renegotiate its rules of the road; India is well qualified to help write those rules and define the norms that will guide tomorrow’s world. That is what I have called Pax Indica: not global or regional domination along the lines of a Pax Romana or a Pax Britannica but a ‘Pax’ for the twenty-first century, a peace system which will help promote and maintain a period of cooperative coexistence in its region and across the world.
CHAPTER ONE
Revisiting the Tryst with Destiny
At midnight on 15 August 1947, independent India was born as its first prime minister, Jawaharlal Nehru, proclaimed ‘a tryst with destiny—a moment which comes but rarely in history, when we pass from the old to the new, when an age ends and when the soul of a nation, long suppressed, finds utterance’. It was an hour of darkness, too, with the flames of Partition blazing across the land, hundreds of thousands being butchered in sectarian savagery and millions seeking refuge across the arbitrary lines that had vivisected their homelands. Yet in the midst of these horrors, mingled with the joy of that sublime moment when, in Nehru’s memorable words, India awoke to life and freedom, our prime minister remained conscious of his country’s international obligations. In his historic speech about India’s ‘tryst with destiny’, Nehru, speaking of his country’s dreams, said: ‘Those dreams are for India, but they are also for the world, for all the nations and peoples are too closely knit together today for any one of them to imagine that it can live apart. Peace has been said to be indivisible; so is freedom, so is prosperity now, and so also is disaster in this One World that can no longer be split into isolated fragments.’ It was typical of that great nationalist that, at a time when the fires of Partition were blazing across the land, he thought not only of India, but of the world.
In a sense, this was not entirely surprising, because India had, for millennia, been engaged with the rest of the world. The north of India had witnessed a series of visitations and invasions, ranging from armed hordes of Macedonians, Scythians, Persians and Central Asians marching in through the north-west in quest of pillage and plunder to learned Chinese scholars crossing the Himalayas in the north and north-east in quest of learning and wisdom. The South, with its long coastlines, had enjoyed trade relations with the Roman Empire, the Arab lands to the west and the east coast of Africa, while extending its religious and cultural influence to the Asian countries to the east. Historical records and archaeological excavations demonstrate that India’s connections with the rest of the world go at least as far back as the Harappan civilization of 2500–1500 BC, which maintained extensive links with Mesopotamia. Europe’s history of trading relations with India is borne out in the writings of the ancient historians Herodotus, Pliny, Petronius and Ptolemy, and long precedes the colonial experience. The naval expansionism of the southern Chola and Pallava empires took Indian influences directly to Thailand, Malaya, Indonesia and Cambodia. Later, the Mughal Empire served as the centre of an Indo-Persian world that straddled both the Bay of Bengal and the Arabian Sea, and whose influence stretched east as well as west—so that Thai kings named themselves after Deccani sultans and the first epic poet of Aceh (in Sumatra) was born in Surat (in Gujarat). It could indeed be argued that the India of today is the direct product of millennia of contact, trade, immigration and interaction with the rest of the world. Nehru was thus speaking as heir to this history.
Yet for two centuries before that moment, India had been unable to express its voice or exercise its place in the world. The British had usurped that right from it; when India, under colonial rule, was made a founding member of the League of Nations after the First World War, its delegation was headed by a former England cricket captain, C.B. Fry. Those who spoke for India in the world did so with Britain’s interests uppermost in their minds. India’s authentic voice had only been heard in those international conferences of subaltern groups where nationalists like Jawaharlal Nehru spoke for his oppressed and excluded people, or in the resolutions passed annually by the Indian National Congress on the international situation—resolutions which had no discernible effect on the decision-makers in London who determined where India would stand in world affairs.
So when Nehru spoke at that midnight moment, he was speaking for a nation that had found its own voice in the world again, and was determined to use it to express a worldview rad
ically different from that which had been articulated by India’s British rulers in previous decades. And he was doing so as a convinced internationalist himself, one who had seen much of the world in his extensive travels and was resolved to apply his own understanding of it to his newly independent nation’s stance in world affairs.
In the six decades since Nehru’s India constituted itself into a sovereign republic, the world has become even more closely knit together than he so presciently foresaw. Indeed, as the twenty-first century enters its second decade, even those countries that once felt insulated from external dangers—by wealth or strength or distance—now fully realize that the world is truly ‘knit together’ as never before, and that the safety of people everywhere depends not only on local security forces, but also on guarding against terrorism; warding off the global spread of pollution, of diseases, of illegal drugs and of weapons of mass destruction; and on promoting human rights, democracy and development.
Jobs everywhere, too, depend not only on local firms and factories, but on faraway markets for products and services, on licences and access from foreign governments, on an international environment that allows the free movement of goods and persons, and on international institutions that ensure stability—in short, on the international system that sustains our globalized world.
Today, whether you are a resident of Delhi or Dili, Durban or Darwin, whether you are from Noida or New York, it is simply not realistic to think only in terms of your own country. Global forces press in from every conceivable direction. People, goods and ideas cross borders and cover vast distances with ever greater frequency, speed and ease. We are increasingly connected through travel, trade, the Internet; through what we watch, what we eat and even the games we play. The ancient Indian notion encapsulated in the Sanksrit dictum ‘vasudhaiva kutumbakam’ (the world is a family) has never been truer.
These benign forces are matched by more malign ones that are equally global. In my time as a career official at the United Nations, I learned that the world is full of ‘problems without passports’—problems that cross all frontiers uninvited, problems of terrorism, of the proliferation of weapons of mass destruction, of the degradation of our common environment, of contagious disease and chronic starvation, of human rights and human wrongs, of mass illiteracy and massive displacement. Such problems also require solutions that cross all frontiers, since no one country or group of countries can solve them alone.
One simply cannot forget that 9/11 made clear the old cliché about our global village—for it showed that a fire that starts in a remote thatched hut or dusty cave in one corner of that village can melt the steel girders of the tallest skyscrapers at the other end of our global village.
In such a world, issues that once seemed very far away are very much in your backyard. What happens in North America or North Africa—from protectionist politics to civil society uprisings to deforestation and desertification to the fight against AIDS—can affect your lives wherever you live, even in North India. And your choices here—what you buy, how you vote—can resound far away. As someone once said about water pollution, we all live downstream. We are all interconnected, and we can no longer afford the luxury of not thinking about the rest of the planet in anything we do.
It has taken us some time to internalize this conviction in India. After all, self-reliance and economic self-sufficiency were a mantra for more than four decades after independence, and there were real doubts as to whether the country should open itself up further to the world economy. Whereas in most of the West most people axiomatically associated capitalism with freedom, India’s nationalists associated capitalism with slavery—for, after all, the British East India Company had come to trade and stayed on to rule. So India’s nationalist leaders were suspicious of every foreigner with a briefcase, seeing him as the thin edge of a neo-imperial wedge. Instead of integrating India into the global capitalist system, as only a handful of post-colonial countries like Singapore chose to do, India’s leaders (and those of most former colonies) were convinced that the political independence they had fought for so hard and long could only be guaranteed through economic independence. So self-reliance became the mantra, the protectionist barriers went up and India spent forty-five years increasingly divorced from global trade and investment. (Which only goes to show that one of the lessons you can learn from history is that history can sometimes teach you the wrong lessons.)
It was only after a world-class balance of payments crisis in 1991, when our government had to physically ship its reserves of gold to London to stand collateral for an International Monetary Fund (IMF) loan, failing which we might have defaulted on our debt, that India liberalized its economy under our then finance minister Manmohan Singh. The amount of gold possessed by the women of the household has often been seen, in Indian culture, as a guarantee of the family’s honour; surrendering the nation’s gold to foreigners betokened a national humiliation that the old protectionism could not survive. Since then, India has become a poster child for globalization. It is now widely accepted across the political spectrum that our growth and prosperity would be impossible without the rest of the world.
Young Indians today are likely to spend a lot of their adult lives interacting with people who don’t look, sound, dress or eat like them. Unlike their parents, they might well work for an internationally oriented company with clients, colleagues or investors from around the globe; and increasingly, they are likely to take their holidays in far-flung destinations. The world into which they will grow will be full of such opportunities. But along with such opportunities, today’s young Indians may also find themselves vulnerable to threats from beyond India’s borders: terrorism, of course, but also transnational crime syndicates, counterfeiters of currency, drug smugglers, child traffickers, pirates and—almost as disruptive—Internet hackers and spammers, credit-card crooks and even imported illnesses like swine flu.
Yet many Indians have not yet fully realized the importance of their government devising policies to deal with such challenges that would affect their, and one day their children’s, lives. Should such policies, in an ever more interdependent world, even be called foreign? One of the reasons that foreign policy matters today is that foreign policy is no longer merely foreign: it affects people right where they live. Each of us should want our government to seize the opportunities that the twenty-first-century world provides, while managing the risks and protecting us from the threats that this world has also opened us up to.
Indians therefore have a growing stake in international developments. To put it another way, the food we grow and we eat, the air we breathe and our health, security, prosperity and quality of life are increasingly affected by what happens beyond our borders. And that means we can simply no longer afford to be indifferent about our neighbours, however distant they may appear. Ignorance is not a shield; it is not even, any longer, an excuse.
Much of my own life has been conducted on the global stage. Born in London but brought up in India, I left the country at nineteen, studied abroad and joined the United Nations, serving it in Europe, in Southeast Asia and in the United States while helping douse humanitarian and peacekeeping fires around the world. I returned to India, more than three decades after leaving it, to play a part in its public life and contribute to developing, whether in or out of office, its vision of the world in the twenty-first century.
And yet it is not as an unreconstructed internationalist myself that I write this volume. It is true that I have had the privilege of acquiring extensive international experience, especially during those nearly three decades of service at the UN, and I value the perspective this has given me on the world. But my own focus, in the relatively short period that I have been in public life, has inevitably been on the domestic realities of our country. When I think of the world today, I am conscious of the need to think of it not as a former UN official, but from the perspective of a member of Parliament from Thiruvananthapuram, which despite being the capital o
f Kerala is still two-thirds a rural constituency. Though the city has long had connections to the outside world—one of its shipping harbours, Poovar, was the legendary Ophir of ‘King Solomon’s Mines’, and it was one of the first Indian cities to enjoy air services in the 1930s, at the same time as Karachi and Mumbai—the concerns of most of its residents are largely domestic. I am obliged to remember that the bulk of my time in recent months has been spent in listening, and giving political expression, to the voices of the poor, the marginalized and the downtrodden in my district, a place emblematic in many ways of our ancient land now roaring into life in the twenty-first century.
What does looking at India’s foreign policy mean from that perspective? For me, frankly, the basic task for India in international affairs is to wield a foreign policy that enables and facilitates the domestic transformation of India. By this I mean that we must make possible the transformation of India’s economy and society through our engagement with the world, while promoting our own national values (of pluralism, democracy, social justice and secularism) within our society. What I expect from my national leaders is that they work for a global environment that is supportive of these internal priorities, an environment that would permit us to concentrate on our domestic tasks. Ensuring the country’s security, and its freedom to make its own decisions in its own interests, is the first and most obvious of those priorities; but then comes the need to maintain good relations with those nations that are essential suppliers of the investment and trade, energy and mineral resources, food supplies and water flows without which growth, development and the elimination of poverty would not be possible. India is engaged in the great adventure of bringing progress and prosperity to a billion people through a major economic transformation. At the broadest level, the objective of India’s foreign policy must be to protect that process of domestic social and economic transformation, by working for a benign environment that will ensure India’s security and bring in global support for our efforts to build and change our country for the better.