Tag Archive for: India

Australia and the Quad

On 18 January, admirals from Australia, India, Japan and the US sat together on stage at the high-profile Raisina Dialogue in New Delhi. Their presence reflected the shared strategic assessment that China has become a disruptive force in the Indo-Pacific. Taking time out to deliver a lecture at India’s National Defence College, Australian Defence Industry Minister Christopher Pyne echoed remarks by Indian PM Narendra Modi to the Australian Parliament in 2014, affirming that India had shifted from the periphery to the centre of Canberra’s strategic frame.

Yet on 30 April, the Australian reported that Australia had failed in its push to secure an invitation to join Japan and the US in the annual Malabar exercises with the Indian Navy. The explanation provided was that New Delhi didn’t want to offend China ahead of the informal summit between Modi and Xi Jinping in Wuhan on 27–28 April. That’s misleading. India’s naval exercises with Japan and the US are a strategic challenge for China; Australia would add only modest capabilities.

There’s a threefold basis to India’s reluctance to invite Australia back into the Quad: the shadow of a previous abandonment of the Quad by Australia; an imbalance in the depth of bilateral relations with Australia compared with those with Japan and the US; and consideration of China’s sensitivity. The last is especially important because of perceptions about Australia’s seeming instinct for perpetual war and the Turnbull government’s turn to an anti-China posture over the past 18 months.

The origins of the Quad were entirely benign. In December 2004, in response to the massive earthquake and Indian Ocean tsunami, the four countries with the maritime capabilities, logistical resources, political will and decision-making capacity to act quickly and effectively came together in a core group to coordinate tsunami relief. The memory of that remarkable experience in multilateral cooperation on disaster relief and humanitarian assistance lingered and in time gave birth to the Quad.

The first informal quadrilateral summit was held on the margins of the ASEAN Regional Forum meeting in Manila in August 2007 between the PMs of Australia, India and Japan and Vice President Dick Cheney. The four joined Singapore the following month in a large naval exercise that drew Chinese diplomatic protests. In February 2008, PM Kevin Rudd pulled Australia out of the combined exercises.

However, years of subservience to Chinese sensitivities failed to soften Beijing’s growing assertiveness across the Indo-Pacific. India began aggressively pursuing diplomatic initiatives to the east, Washington announced an Asia pivot, and the Coalition government began to articulate public unease about aspects of Chinese behaviour in Australia’s primary strategic region.

The US national defence strategy alleges that China ‘is leveraging military modernization, influence operations, and predatory economics to coerce neighboring countries to reorder the Indo-Pacific region to their advantage’ in pursuit of ‘Indo-Pacific regional hegemony’. In response, says the national security strategy, the US will ‘increase quadrilateral cooperation with Japan, Australia, and India’. Australia’s 2017 foreign policy white paper similarly asserts: ‘The future balance of power in the Indo-Pacific will largely depend on the actions of the United States, China and major powers such as Japan and India.’

The Indo-Pacific frame integrates geography, the ‘free and open’ principle and democratic values into one strategic construct. The Indian Ocean covers a fifth of the world’s ocean area, with almost 50 countries around its littoral and immediate hinterland. With links to both the Atlantic and the Pacific oceans, it is of vital commercial, political and strategic importance to India.

India’s peninsular shoreline exposes it to seaborne threats from the east, west and south, while also giving it a major commercial and geostrategic location astride the sea lanes of communication between the Middle East and East Asia. Adding population, economic weight, military power and diplomatic clout gives India multiple roles in safeguarding sea lanes, countering piracy, containing Islamic militancy and mounting disaster relief operations.

The Australian continent is part of the geographical divide between the Indian and Pacific oceans. Australia is inextricably invested in the security of both regions. If the Indo-Pacific is accepted as the new organising principle of the foreign policies of Australia, India, Japan and the US, then the four coming together informally in the Quad is a logical outcome. Australia’s participation would have symbolic value in highlighting the entente cordiale between the long-established democracies but would add marginally to the cost in India’s relations with China.

India’s policy elite remains suspicious of Australia’s reliability. At a joint press conference in Canberra on 5 February 2008 with his Chinese counterpart Yang Jiechi, Foreign Minister Stephen Smith said: ‘One of the things which caused China concern last year was a meeting of that strategic dialogue [with Japan and the US] plus India, which China expressed some concern with’ and ‘Australia would not be proposing to have a dialogue of that nature’ again. On 10 February, Smith explained that the 2007 quadrilateral meeting had been a ‘one-off’. While the trilateral dialogue with Japan and the US would continue, the ‘four-way conversation’ would not.

The optics of the announcement in the presence of China’s foreign minister, and the substance of the unilateral cancellation of the Quad, still colour India’s assessment of Australia’s credentials. This also explains why India spurned an invitation to Australia in 2017. India was uncertain of ‘Australia’s “strategic clarity” vis-à-vis China, particularly as China has made significant inroads into Australia’. Yet India was happy to hold bilateral AUSINDEX naval exercises with Australia in 2015 and 2017. The two have also agreed to a 2+2 dialogue involving their defence and foreign secretaries.

Growing nervousness at China’s assertiveness and latent apprehensions about the limits of its regional ambitions are the prime motivations for the Quad’s revival. The complementary security interests are given ballast by shared political values and a rhetorical commitment—often breached in practice—to an open rules-based order.

For each of Australia, India and Japan, the relationship with the US is the single most important and that with China the second most critical—outweighing the importance of the other two partners. That means there will always be strong pressures to subordinate ties with the lesser two partners to China’s sensitivities. As a military grouping with a China containment agenda, the Quad would polarise the region further and bend it in the direction of a tense, zero-sum competition.

Rather than a military alliance aiming for strategic deterrence, therefore, the overarching goal should be diplomatic dissuasion, underpinned by extensive working-level engagement in foreign and security policy and military-to-military interactions.

The Wuhan dialogue: dismantling old structures and debating the ‘reset’

Prime Minister Narendra Modi’s sudden visit to Wuhan for a two-day ‘informal dialogue’ with Chinese President Xi Jinping earlier this week revives questions in India about whether the mutual sincerity expressed by the two leaders could be transformed into something greater: a shared commitment to a new order, the ‘Asian Century’.

While the appointment of senior diplomat Vijay Keshav Gokhale as the new foreign secretary in January marked the beginning of New Delhi’s attitudinal shift, the realisation that the relationship may be changing seems to have seeped into India’s entire political spectrum. In an unusually short span of two months, beginning with the new foreign secretary’s visit to Beijing in February, India’s National Security Advisor, Defence Minister and External Affairs Minister have all visited China, demonstrating New Delhi’s commitment to constructive engagement.

While the existence of diversified channels of communications, bilateral dialogues and confidence-building measures have been instrumental in managing Sino–Indian ties, New Delhi’s latest outreach marks a systemic shift in these mechanisms’ orientation. Rather than managing the relationship in a perceived zero-sum setting, the new approach envisions deepening interdependence.

Visits to China by previous Prime Ministers Rajiv Gandhi, Atal Bihari Vajpayee and Manmoham Singh generated high expectations and ice-breaking agreements, but fell into the structural trap of managing bilateral irritants. In this context, Wuhan’s informal setting aimed to ‘reset ties’ without allowing complexities considered systemic to Sino–Indian ties to short-circuit discussions.

Optimism runs high because the potential benefits of cooperating also appear to be high. On a global scale, as leading economies and regional military powers India and China are insulated from external threats such as those faced by the United States or Russia. That relative freedom reinvigorates the idea of combining their efforts to shift the weight of global multipolarity in Asia’s favour.

As the unfolding conflict in the Middle East creates increasing tension between the US and Russia, and where the political discourse signals the return of hard-power disputes, there’s huge potential that India and China could redefine their bilateral relations, as well as the relations of blocs such the G-20, BRICS and even the Shanghai Cooperation Organisation.

Those organisations—besides catering to the needs of the developing world—could potentially defuse crises erupting in regional theatres as a result of Cold War–style ructions. On the economic front, deeper and equitable ties with India could at least partly insulate China from the threat posed by America’s unpredictable economic policies, a potential that up to now has been left underexplored deliberately.

The larger idea driving the summit was that rather than allowing existing rivalries to spiral into regional competition, New Delhi and Beijing could combine their mutual economic and geostrategic power to project greater influence in shaping the global security and geoeconomic architecture at a time when the relative decline of the US has provided greater manoeuvring space.

In the region as well, the summit came as a welcome break from the usual issues driving the two nations’ foreign policymaking, where their unsettled border, Sino–Pakistani ties and the Dalai Lama take precedence. The institutionalisation of those tensions even manifest themselves in global fora, such as India’s quest for membership in the Nuclear Suppliers Group and the issue of Masood Azhar in the Security Council. It should be recalled that the first Sino–Indian strategic dialogue, held in February 2107, was a non-starter precisely because the Indian side focused on those irritants.

As experience from the older approaches gives way, and as newer avenues of cooperation throw up new ideas while still allowing negotiations about the old irritants to follow their course, the way that the Sino–Indian relationship is understood and conducted could be revolutionised. This has become clearer as Modi called for more informal summits, giving precedence to personal diplomacy intended to bypass these old structural trappings.

Modi’s call to engage with President Xi on ‘issues of bilateral and global importance’ set the template for this dialogue, and emerging details have outlined the course on how both those bilateral and global issues would be dealt with. For example, the two leaders agreed that the old, ongoing irritants can be managed through existing mechanisms, but avoided getting into specifics. That marked a shift from the older approach.

In a breakthrough announcement, both agreed to a joint economic project in Afghanistan, marking a diplomatic achievement for India in the context of the two countries’ relations with Pakistan. As expected, the leaders discussed evolving global challenges, emphasising avenues of strategic and economic cooperation. The fact that they discussed efforts to overhaul international institutions—aiming for ‘open, multipolar pluralist participatory global economic order’—goes a long way to explaining how discussions escaped falling hostage to the old irritants.

That said, even if the summit ended on a high note with the acknowledgment of the benefits that lay ahead, some critical issues seem to have been temporarily forgotten in the warm glow of optimism. It isn’t yet clear, for example, how the two nations would recalibrate their geostrategic objectives to align with the new consensus.

To begin, how will the pledged ‘new era’ of cooperation accommodate India’s opposition to China’s Belt and Road Initiative (BRI), particularly given that New Delhi recently reaffirmed its refusal to participate in the BRI.

Second, as Chinese policies in the South China Sea are the focal point for the Quadrilateral Security Dialogue’s (Quad) revival, Indian participation in the Quad will require a tightrope walk by New Delhi, unless the very idea behind Quad 2.0 undergoes a change.

Third, with bilateral economic ties strained after India’s trade deficit with China crossed the $50 billion threshold, how the two nations envision reshaping the global economic order remains to be answered.

In other words, having identified the path of cooperation, success depends on the strategic overhauls that lie ahead.

Choreographing a wallaby–elephant pas de deux

In January, Greg Sheridan wrote about a forthcoming report to the government by former foreign secretary Peter Varghese on how to elevate relations with India. Peter, who served also as high commissioner to India, gives three reasons why India’s economic turnaround is transformational for Australia: its sheer scale, the complementarity between the Australian and Indian economies, and the need for Australia to diversify the risk to its trade-dependent economy.

India’s economy is being transformed because of urbanisation; the shift away from an informal to a formal economy; the youth-based demographic dividend of workers and consumers; and the substantial upgrade of infrastructure. Australia, Peter will recommend, should give strategic priority to education, agribusiness, resources and energy, and tourism as the sectors in which it can do especially well in embracing India, to reciprocal benefits.

Peter’s choreography for the wallaby–elephant pas de deux dovetails neatly with the analysis of the bilateral relationship that Ashok Sharma and I offer in an article just published in Strategic Analysis, India’s premier journal on strategic affairs. The context for the strengthening Australia–India relationship is the broad structural shifts underway in global order. While there is turbulence elsewhere as well, the region experiencing a complete reconfiguration of the existing order is the Indo-Pacific.

There are three trend-lines behind this (with cross-linkages between them): the relative waning of US power and influence; the sustained rise of China as a comprehensive national power; and the simultaneous rise of India, even if a dozen or so years behind China.

The frame increasingly used in Australia, including in the 2017 Foreign Policy White Paper, to define the strategic arc connecting the Indian and Pacific Oceans through Southeast Asia is ‘Indo-Pacific’. Where the previously preferred term ‘Asia–Pacific’ excluded India, ‘Indo-Pacific’ connects India not just to Australia across the Indian Ocean, but also to Southeast and East Asia.

Our analysis has a twofold argument. First, the main driver of the deepening Australia–India engagement is the changing regional geopolitical equation. But in addition, secondly, economic engagement, people movements and shared political values provide ballast and texture to the security underpinnings.

In the foreseeable future, India isn’t going to surpass China, Japan or the US as Australia’s most critical bilateral partner on any single dimension such as trade, investment or security. Indeed, India is unlikely to come even close to the security importance of the US, the economic importance of China or the critical relevance of Indonesia to Australia. Nor will India emerge as Australia’s single most important bilateral partner on any composite index.

Rather, for the foreseeable future, owing both to India’s scale and the low base from which the relationship starts, India could emerge as the single most critical Indo-Pacific country for Australia in the rate of growth in the breadth and depth in most dimensions of the relationship. In turn, the deepening and consolidation of Australia–India economic, security, diplomatic and cultural relations could prove a game changer in the balance of power around the Indo-Pacific.

In a major foreign policy speech on 18 October 2017, the since-fired Secretary of State Rex Tillerson became the first senior US official to switch to the ‘Indo-Pacific’ strategic frame. He added that the US and India ‘must serve as the eastern and western beacons of the Indo-Pacific’. The following month a senior White House official explicitly justified the change of terminology by saying that the term ‘Indo-Pacific’ ‘captures the importance of India’s rise’. Also in November, the Quadrilateral Security Dialogue among Australia, India, Japan and the US was revived on the sidelines of the ASEAN summit in Manila, attended by the leaders of the four democratic nations, to China’s chagrin.

More recently the four Quad members were also said to be exploring the creation of a joint regional infrastructure project as an alternative to China’s Belt and Road Initiative. Nevertheless the Indian policy elite remains suspicious of Australia’s reliability, given how Kevin Rudd suddenly cancelled participation in 2008 for fear of offending China. Today India is reluctant to offend China for the sake of a flip-flopping fourth partner and it refused to invite Australia to the 2018 Malabar naval exercises with Japan and the US.

All this said, some scepticism is warranted about India’s commitment to economic reforms, without which its growth trajectory will stall, the demographic dividend of a young population will turn into a public policy nightmare of mass youth unemployment leading to a deadly winter of discontent, and the world will again lose interest. India has a unique capacity to look every opportunity firmly in the eye, turn around and walk resolutely in the opposite direction. The Modi government came in on the promise of decisive action on pro-growth policies, but its tenure has been marked more by political calculations than by long-term economic strategy.

Demonetisation, whereby the two highest denomination currency notes (Rs 500 and 1,000) were withdrawn overnight as legal tender, was shock therapy rooted in quack economics. It caused massive disruption and lasting damage for very dubious structural economic benefits, but proved politically popular. Worse, it was incontestable proof of statism born of contempt for private property rights. As an old Indian joke has it, the economy grows mainly in the night when the government is asleep.

And the exemption given to political parties, which provided a clear pathway for black money to be laundered into white in bartered exchange for crony capitalism or other political favours, showed just how cynical the government is in deploying a fight against corruption as its political battle cry.

The introduction of a countrywide goods and services tax, by contrast, was a major structural reform that was totally botched in implementation, with up to six tax bands and loads of exemptions. The complexity and potential for arbitrariness increased the discretionary power of officialdom and thereby maximised the scope for bribery and extortion by tax officials instead of cutting it back. And the main reason for Australia being a major education destination for Indian students is the wide and growing gap between demand and supply for quality education in India, which the Modi government has also failed to acknowledge and address.

In other words, considerable promise but also still a few nagging doubts as policy action falls well short of the inflated rhetoric.

Has India blinked?

Indian Prime Minister Narendra Modi’s announcement that he plans to visit China for an ‘informal summit’ with President Xi Jinping is part of a ‘reset’ strategy vis-à-vis Beijing that New Delhi has embarked upon in the last few months.

It’s the culmination of a series of outreach measures and comes on the heels of Defence Minister Nirmala Sitharaman’s attendance at the Shanghai Cooperation Organisation’s (SCO) defence ministers’ meeting and External Affairs Minister Sushma Swaraj’s presence at the corresponding foreign ministers’ event in China this week. Modi’s visit will put the official stamp on the ‘reset’ and is likely to have significant implications for the region.

Notably, its speculated that Modi’s upcoming visit is the result of an invitation from Beijing and is even more interesting because he is already scheduled to attend the SCO summit in China in June this year. It appears that the Indian government’s overtures to China in recent months, including visits by the Indian foreign secretary and national security advisor, and the withdrawal of its support to a Tibetan event held in New Delhi, have borne fruit and are being reciprocated by the PRC.

More importantly, in what has been interpreted as shameful kowtowing to Beijing, India refrained from intervening to resolve the political crisis in the Maldives in February, ignoring calls from several Indian defence analysts to take definitive action. Furthermore, there are already rumours that India will remove its ‘blanket opposition’ to China’s Belt and Road Initiative (BRI), even though it would continue to oppose the China-Pakistan Economic Corridor.

Remarkably, this apparent ‘thaw’ in relations comes months after the face-off between the two Asian giants in Doklam near the triboundary junction of China, India and Bhutan, a crisis in which India had maintained a steadfast resolve and appeared to have won diplomatic leverage. Moreover, persistent Chinese opposition to India’s aspirations to join the Nuclear Suppliers’ Group and become a permanent member on the United Nations Security Council are long-standing thorns in the relationship.

As well, China’s move at the UN to block the listing of Jaish-e-Mohammad group leader and mastermind of attacks on India, Masood Azhar, as a terrorist served as another major irritant. At a time when Chinese assertiveness and adventurism is growing rapidly, and Beijing is increasingly encroaching upon India’s strategic space—especially in the Indian Ocean Region—India seems to be dialling back from the position of strength it accrued post-Doklam last year.

So, what accounts for this dramatic turnaround in Indian policy within a matter of months?

The simplest explanation is that this is India’s default strategic position and is symbolic of a pattern of docility that has characterised several Indian governments vis-à-vis China in the past, often with disastrous results. Moreover, there are reports that China is preparing for another round of provocations in Doklam now that the winter is over and road building can begin again. The Modi government doesn’t have the appetite for another clash along the border at a time when it’s preoccupied with domestic issues, struggling with the cost of economic reforms and preparing for the 2019 general elections. New Delhi also finds itself unable to reduce the trade deficit with Beijing, now running at US$52 billion.

Also, India realises that its relations with Pakistan aren’t going to improve, and prudence demands that it limit the number of adversaries it has, especially where both in this case have nuclear teeth.

More significantly, this policy shift could in part be attributed to the uncertainty hanging over geopolitical dynamics in the region. Donald Trump’s transactional attitude to foreign policy and vacillating stance on US commitment to its allies and friends leave little room for strategic manoeuvring for middle and rising powers. The Modi government’s strategy may also recognise Beijing’s growing clout in the region and especially in India’s neighbourhood. Engagement rather than confrontation seems to be more palatable to New Delhi.

However, it’s worth considering the damage this shift is likely to do to India’s own regional standing and reputation as the net security provider to the small countries in South Asia. It’s important to remember that India emerged from the Doklam episode looking much better than China—the incident was recognised as a case study in how to deal with Chinese assertiveness. By turning a blind eye to blatant Chinese power wielding in the Maldives, all in an effort to avoid antagonising Beijing, India is setting an example to its smaller neighbours like Sri Lanka and Nepal of what they can expect if they have a run-in with the dragon. Although the boundary dispute is said to be on the diplomatic table, it’s unlikely that it’ll ever be resolved without substantial concessions from India.

Furthermore, if this pattern of strategic kowtowing continues, it could spell the end to any chance of the rebirth of the Quadrilateral Security Dialogue as India is unlikely to participate in any grouping with even remotely anti-China connotations. Already, Japan and Australia seem to be in need of strategic reassurance in the face of an unpredictable US and a revisionist China. India’s strategic reorientation could mean that the grouping will either never materialise or will quickly become redundant. India’s refusal to allow Australia to participate in the annual Japan–US–India Malabar naval exercises this year—despite repeated requests from Australia—is a case in point and goes to show that the Quad will likely die a premature death.

Finally, being the only major country to formally oppose the BRI last year—leading other countries, including Australia and the US, to reassess their own views of it, any indication that India is softening its position on China’s mega-infrastructure project could open the door for further bargaining with Beijing.

Modi’s visit to China for an ‘informal summit’ is thus significant for what it symbolises. It’s clear that neither side is expecting any breakthroughs but the optics indicate that India blinked first.

From the bookshelf: Understanding India and China’s evolving Indian Ocean roles

Beijing claims the South China Sea as China’s own. But it completely rejects any notion that the Indian Ocean should be treated either as India’s ocean or as an Indian preserve. The implications of these inconsistent positions may become increasingly important in the China–India relationship, and have important consequences for other countries in the region.

As Mohan Malik at the the Asia–Pacific Center for Security Studies has noted, Beijing wants to be a ‘resident power’ in the Indian Ocean—just like the US, the UK and France. Chinese naval ships and submarines are now making frequent forays into India’s near seas. Many on India’s maritime periphery have embraced China’s Belt and Road Initiative (BRI).

In the face of growing Chinese heft in India’s ‘front yard’, there’s an intensifying Sino–Indian geopolitical rivalry in the Indian Ocean. Delhi’s traditional influence there is now under serious challenge. Much of this was set out last month in Malik’s excellent two-part article in Inside Policy, published by Canada’s Macdonald-Laurier Institute.

New Delhi has long feared being encircled by China’s ‘string of pearls’ network of installations in the Indian Ocean, and many of its fears may now be coming true. Last year, China opened its first overseas naval base in Djibouti. China may be planning to open a new naval base at Jiwani, next to Pakistan’s China-controlled Gwadar port.

In Pakistan, Sri Lanka and elsewhere, China is using the BRI to create client states. Beijing is using its infrastructure projects, while also creating debt dependency, with corrupt and weak regimes to increase China’s political leverage.

To give a recent example, the pro-Chinese leader of the Maldives, President Abdulla Yameen, declared a state of emergency in February. The Maldives has long been a foundation of India’s sphere of influence in South Asia. Nevertheless, China’s warnings against Indian intervention probably emboldened the autocratic leader of the Maldives to extend the state of emergency despite India’s strong opposition. It also seems to have cowed India, which sent aircraft and ships to its southern bases but didn’t follow up with action to restore democracy in the Maldives.

In the meantime, China is rapidly moving to increase its investments in the Maldives, which include an US$830 million upgrade of the airport, and a 1.3-mile bridge to link the airport island with the capital, which is a US$400 million project.

China has signed a free trade agreement with the Maldives and has leased the uninhabited island Feydhoo Finolhu for tourism use for 50 years. It has probably leased several other islands as well. Because of sea level rise, the Maldives also hopes to receive Chinese help in reclaiming land and creating artificial islands via dredging.

There are also reports of a Joint Ocean Observation Station that China is looking to establish in the Maldives’ western-most atoll in the north, not far from India. There are concerns that this would give the Chinese a vantage point to monitor an important Indian Ocean shipping route. Noted Indian strategic affairs analyst Brahma Chellaney argues that India should warn the Maldivian and Chinese governments that it won’t accept an ocean observation centre.

It’s too early to say whether any of these projects will end up like the Chinese-built international airport in Sri Lanka that’s a rarely used white elephant.

But all of this is a direct challenge to New Delhi in the Indian Ocean. And India is moving to shore up its position against a more assertive Chinse presence by developing its own ‘string of pearls’.

New Delhi recently signed a strategic pact with France, with each opening their naval bases to the other’s warships across the Indian Ocean. That gives the Indian navy access to strategically important French ports—including one in Djibouti that offers easy access to key oil supply and trade routes.

Apart from the French agreement, Prime Minister Narendra Modi this year finalised an agreement for a new base in the Seychelles and negotiated military access to facilities at Oman’s port and airfields. Last year India signed an agreement with Singapore to allow deployments from each other’s naval facilities. And India has expanded its bases on Andaman and Nicobar Islands at the end of the Malacca Strait.

Belatedly, India has realised that it needs to match China’s assertiveness, and that includes expanding its reach into the Pacific. For Delhi, having a counter power-projection capability in the South China Sea is now seen as critical to its strategic deterrence against Beijing. Indeed there has been a recent surge in India’s eastern naval deployments.

As Malik points out, India has also stepped up aid to littorals through its Project SAGAR (Security and Growth for All in the Region), which is designed to revive India’s ancient trade routes and cultural linkages around the Indian Ocean—a counter-move to China’s maritime silk road.

To get a good understanding of all of these developments in the Indian Ocean and how China and India are increasingly bumping up against each other across the Indo-Pacific, there’s no better source than the recently released India & China at sea: competition for naval dominance in the Indian Ocean.

The editor of the volume, Australian scholar David Brewster, points out in his introduction that how India and China get along in the shared Indian Ocean—whether through cooperation, coexistence, competition or confrontation—will be one of the key strategic developments for the entire region.

The book has essays from scholars from Australia, the US, China and India. The essays examine Indian and Chinese perspectives of each other as major powers in the Indian Ocean, China’s growing security presence in the region, the evolution of Indian policymakers’ views towards China’s role in Indian Ocean, the reasons China doesn’t understand India’s concerns (there’s a suggestion that China is an ‘autistic’ superpower), China’s evolving naval strategy and security presence in the region, and how the Indian navy would respond in the event of a conflict, including an examination of subsurface capabilities.

There are valuable chapters on India’s maritime domain awareness strategy in the region, and on its naval interests in the Pacific. There’s also a skeptical view on China’s maritime silk road and the risks that China faces with that initiative.

This book is essential reading on the maritime great game in progress and has many useful insights on how China and India—each a rising power in its own right—are competing to gain relative advantage over the other in the Indian Ocean.

India’s relations with China: suppressed hostility, not open antagonism

At a recent conference, Shivshankar Menon, India’s former national security adviser and an old China hand, declared that ‘India should take China’s rise as a given and work its strategy against that backdrop, instead of looking at the relationship in binaries’. The problem, he said, is that we treat India–China relations as a Twenty20 [cricket] match, thus expecting a speedy response to every move made by the other party.

These were indeed words of wisdom because the relationship between the two major Asian powers is far too complex and multidimensional to be reduced to a tit-for-tat strategy. Such a binary approach, if employed without adequate forethought and preparation, could end up disastrously for India, as happened in the border war of 1962. In that conflict, an irate but uninformed public pushed the Nehru government into a more aggressive policy on the border without adequate military preparedness. The Chinese, on the other hand, were more than prepared for a military confrontation at high altitudes in the Himalayas. India suffered a body blow from which it couldn’t recover for decades.

Although there have been several border clashes between India and China since the 1962 war, both sides have been careful not to let those skirmishes escalate into full-scale conflict. The last military casualty on the border occurred in 1977. Prime Minister Rajiv Gandhi’s visit to China in 1988 broke the ice between the two neighbours and set up a framework that helped isolate the border dispute from the wider gamut of economic and political relations between the two countries.

However, small-scale tensions on the border have continued, including the recent clash at Doklam at the junction of India, Bhutan and China after China tried to construct a road in the area claimed by Bhutan—India’s ally (and de facto protectorate). This occurred on territory that’s very strategically important to India because of its proximity to the narrow ‘chicken neck’ corridor that connects the Indian northeast (some of it claimed by China) with the rest of the country. The 10-week standoff was resolved on 28 August 2017 after China stopped its road construction but didn’t explicitly renounce its claim.

In the meantime, economic relations between the two Asian giants have been thriving. Despite the absence of a free trade agreement between the two countries, China has become India’s largest trading partner with total trade in 2016 amounting to more than US$69 billion. However, this is heavily skewed in China’s favour. It exports goods worth US$60 billion to India and imports goods worth only US$9 billion. While trade has helped bind the economies together to some extent, its lopsided nature has also created tensions.

Nonetheless, it’s strategic factors rather than economic ones that create tensions in India–China relations. Indian suspicion of China’s designs in its neighbourhood, especially Beijing’s cultivation of strategic relations with Myanmar and Sri Lanka, is a catalyst for renewed Indian misgivings. China’s increasingly intimate economic and political relations with India’s nemesis, Pakistan, have been perennial points of contention between the two countries. China’s massive financial commitment—US$500 million—in grants to build the Gwadar port facilities in Baluchistan is seen in India as part of Beijing’s strategic policy of extending its reach to the Persian Gulf, but it also bolsters Pakistan’s capacity to confront India in the future.

China, for its part, suspects that the US and India are colluding to curb China’s growing influence in the Asia–Pacific. The Trump administration’s active wooing of New Delhi to achieve this end is an open secret. The renaming of the Asia–Pacific region as the Indo-Pacific region in American official parlance since 2017 is seen by China and other countries in the region as a public endorsement of India’s regional primacy.

US Secretary of State Rex Tillerson sent a clear signal in a speech last October that Washington considers India not only a strategic ally, but also a partner in building a ‘rules-based order’ in the international system. In the same speech, Tillerson characterised China as a ‘destabilising force’ in the region and accused Beijing of ‘provocative actions in the South China Sea [that] directly challenge the international law and norms that the United States and India both stand for’. China must have taken note of the contrasting way in which the secretary of state portrayed the two countries.

While the Indians didn’t openly dispute Tillerson’s thesis on China (and indeed probably agreed with it in their heart of hearts), they didn’t endorse it publicly. This cautionary policy reflects Indian ambivalence towards China. On the one hand, New Delhi considers Beijing to be its principal rival and competitor. On the other, economic and—even more—geographic compulsions preclude India from openly taking an antagonistic stance vis-à-vis China. The Sino–Indian border is too long and, despite India’s advances in bolstering its military capability, the gaps between the two countries’ GNP and military technology are too great for India to openly pursue a hostile policy towards China.

Consequently, Sino–Indian relations in the foreseeable future will include elements of conflict and cooperation that are unlikely to see an open clash between the two Asian giants. One can possibly describe the relationship, at least on the Indian side, as one of ‘suppressed hostility’ that will continue at least over the next couple of decades, or until India is able to appreciably narrow the economic and technological gaps with China.

India’s choice in the Maldives

The Maldives—that beautiful Indian Ocean country comprising more than 1,000 coral islands—is known the world over as a tranquil and luxurious travel destination. But the country is now being roiled by a political crisis so severe that international advisories are cautioning against travel there.

The rule of law in the Maldives has been steadily deteriorating ever since President Abdulla Yameen came to power in 2013. The situation escalated sharply earlier this month, when Yameen refused to comply with the Supreme Court’s unanimous order quashing the convictions, which he had engineered, of nine opposition figures—including the exiled former president, Mohamed Nasheed—on terrorism charges. Instead of freeing those whose sentences were nullified, Yameen declared a state of emergency and jailed two of the Supreme Court’s five judges, including the chief justice.

To be sure, authoritarianism is not new to the Maldives. Indeed, Nasheed is the only democratically elected, non-autocratic president the country has had since it gained independence from Britain in 1965. His tenure lasted just over three years, until, in 2012, he was forced at gunpoint to resign.

But the Maldives’ sordid politics is having an increasingly far-reaching impact, not least because it is closely linked to radical Islam. On the day Nasheed was overthrown, Islamists ransacked the Maldives’ main museum, smashing priceless Buddhist and Hindu statues and erasing all evidence of the country’s pre-Islamic roots. On a per capita basis, the Maldives has sent the highest number of foreign fighters to support terrorist groups in Syria and Iraq.

Moreover, the Maldives sits astride critical shipping lanes in the Indian Ocean, making it vital to security in the region. As a result, the country’s deteriorating political conditions are increasingly capturing the international community’s attention. Democratic powers, from the United States to India, are calling upon the United Nations to intervene in the crisis, while China, seeking to advance its own interests in the Indian Ocean, is defending the graft-tainted Yameen.

The increasingly close relationship between China and the Maldives represents a significant shift from the past, when India was the country’s primary regional partner. Maldivians are mainly of Indian and Sri Lankan origin, and have strong cultural and economic ties to those countries. Their country has traditionally been viewed as part of India’s sphere of influence.

But, in recent years, China has been eroding India’s influence in the Maldives, as part of its effort to build its ‘string of pearls’: a chain of military installations and economic projects aimed at projecting Chinese power in the Indian Ocean. Just as China recently secured the Sri Lankan port of Hambantota on a 99-year lease, it has, according to Nasheed, quietly acquired 17 islands in the heavily indebted Maldives for investment purposes.

But, betraying its strategic objectives, China has also sent warships to visit the Maldives. If China, which has stepped up military pressure on India along their Himalayan frontier, turned one of the Maldivian islands into a naval base, it would effectively open a maritime front against India—a milestone in China’s strategic encirclement of its neighbour.

The Maldivian crisis thus is a defining moment for India. Will India intervene militarily, as Nasheed and other Maldivian opposition leaders have requested, or will it allow Yameen to continue to enable China to pursue its strategic objectives in the region?

There is some precedent for an Indian military intervention in the Maldives. In 1988, India snuffed out a coup attempt against the autocratic Maumoon Abdul Gayoom engineered by a Maldivian businessman with the aid of armed mercenaries, especially Sri Lankan Tamil separatists. Thanks to India’s swift military action, Gayoom would hold onto power for another two decades.

Yet when the country’s first and only democratically elected president beseeched India in 2012 to rescue him from the Islamist forces laying siege to his office, India looked the other way. India’s government felt betrayed by Nasheed’s own burgeoning relationship with China. Not only had Nasheed awarded China its first infrastructure contracts; just three months before his ouster, he had inaugurated the new Chinese embassy in the capital, Malé, on the same day that India’s then-prime minister, Manmohan Singh, arrived for a regional summit.

Today, an Indian intervention could be dicey, not least because no legitimate authority is inviting India to send in forces. Indian paratroopers could gain effective control of Malé within a few hours. But what would the endgame be? Amid rising Islamist influence and shifting political allegiances among the handful of powerful families that dominate the Maldives’ economy and politics, finding reliable allies committed to—much less capable of—protecting democratic freedoms would prove a daunting challenge.

Moreover, even if Yameen were ousted and the country held a democratic election, it is unlikely that China’s influence could be contained. As the experiences of Bangladesh, Myanmar, Nepal and Sri Lanka illustrate, China has outmaneuvered India diplomatically, even when dealing with democratically elected governments. Indeed, it did so in the Maldives itself, with Nasheed. Because the country’s debt will continue to rise, regardless of its leadership, China will retain its favourite source of leverage.

India, with its proximity and historical ties to the Maldives, may seem to hold a strong hand. But it has a lot to lose if it aggravates an already volatile political situation in its maritime backyard by intervening militarily.

India’s best option is to hold out a credible threat of military action, while imposing, together with other democratic powers, economic sanctions that undercut support for Yameen among the Maldivian elite, many of whom own the luxury resorts that now have far too many empty rooms. With them on side, perhaps the international community would be able to ensure that the presidential election scheduled for later this year is fair and inclusive—and supervised by the UN. That is the only way to end the crisis, and restore peace to an Indian Ocean paradise.

Trilateral dialogue opens the way for Indo-Pacific cooperation

We can’t sit back while others engage in hard and soft power strategies to win influence, not if Australia is to positively shape the Indo-Pacific. That is one of the key messages of last week’s foreign policy white paper.

Instead, we’ll need to innovate and cooperate with others to give us the greatest range of policy options to advance our interests. The recent quadrilateral meeting of senior officials from Australia, the US, India and Japan earlier this month is one example. Another example occurred last week in New Delhi. I sat down with representatives from Australia, India and Indonesia for the third meeting of the Track 1.5 trilateral dialogue on the Indian Ocean (TDIO) hosted by the Indian Council of World Affairs. And today, Indonesia will host the first dialogue between officials of the three countries.

The impetus for the TDIO originally came not just from shared geography, but from a desire to invigorate the Indian Ocean Rim Association (IORA). Australia, India and Indonesia are key IORA members. For a six-year period, the three states set the IORA agenda. In November 2011, India assumed the chair; then, after a two-year term, it made way for Australia. Indonesia took over in 2015. (South Africa is the current chair and the UAE is the vice-chair.) The six-year stewardship of the grouping by the three countries produced significant institutional and program advances for IORA.

But Canberra, New Delhi and Jakarta now recognise that as neighbouring democracies in the eastern Indian Ocean, they have opportunities for additional trilateral cooperation in areas such as disaster relief, maritime security risks, marine science, sea lane security, and illegal people trafficking.

At the TDIO, I was asked to speak on fisheries cooperation in the Indian Ocean. I had several key messages.

The three TDIO states can contribute to better fisheries management by working with Indian Ocean bodies to help build capacity, skills and governance. Indian Ocean fisheries management is diverse in its scope. But compared to the Pacific, the Indian Ocean is the wild west.

We should prioritise areas related to monitoring, control and surveillance. I argued that a key issue here is the management of the neritic tuna and tuna-like species that are of central importance to the coastal states, but not to the distant-water fishing states. These smaller tuna species are very important for both Indonesia and India, as well as states like Malaysia and Bangladesh. They occur across the Indian Ocean rim, making them a perfect focus for the three countries to promote as an IORA initiative.

I noted that Indonesia and Australia have a common concern over shared stocks in the Arafura and Timor seas and in Indonesian traditional fisheries in Australian waters in the Timor Sea. I pointed out that our fisheries researchers have a long history of close cooperation on southern bluefin tuna and, more recently, on tropical tuna in both the Indian and Pacific oceans.

But with India we’ve yet to really engage on broader fisheries issues. To date, India’s greatest interest in Australia seems to be gaining access to its markets, fishing waters or products. But India is keen to develop the sophistication of its fisheries market access and associated management capability.

I suggested that Australia would be keen to work collaboratively with India on areas of mutual fisheries interest, such as the use of modern genetics to trace fisheries products, which would assist stock management and help combat illegal, unreported and unregulated (IUU) fishing.

I was keen to promote ideas on how the three countries could cooperate to combat IUU fishing. For example, we should be encouraging flag state vessels to use vessel monitoring systems and promote greater monitoring of transshipment at sea. We could consider encouraging Pacific fisheries observers to undertake observer operations on a fee-for-service basis in the region. Currently, there’s very weak observer coverage in the Indian Ocean.

We could promote the e-monitoring of vessels with camera footage. Seventy-five Australian fishing boats use this technology and they’re finding that log book reporting is improving. And we should, as occurs in the Pacific, be promoting a high seas boarding and inspection regime in the Indian Ocean.

I noted three positive steps in tackling IUU fishing in the region. First, in March Indonesia opened the International FishFORCE Academy to train enforcement officers and promote interagency cooperation. Second, Mauritius recently announced that it will assess all the fishing vessels operating in the waters of the Indian Ocean Commission states to study their identity, history, ownership and activities, with a view to preventing, deterring and eliminating IUU fishing. Port Louis is one of the major ports for the tuna fleet operating in the Indian Ocean. Third, in the western Indian Ocean, eight countries recently launched a program to examine the legality of their licensed industrial fishing vessels. This will cover around 500 fishing vessels.

I stressed that all three countries should promote a follow-the-money approach to identify and sanction beneficiaries, ensuring that they enjoy no benefits from their illegal activities.

Our three countries should be encouraging Indian Ocean states to fully adhere to the FAO Port State Measures Agreement, RFMO rules and regulations, the UN Convention on Transnational Organised Crime and its protocols, and the UN Convention on the Law of the Sea and relevant ILO conventions.

We should promote the idea of creating a blacklist of vessels in the Indian Ocean, as they have in the central and western Pacific.

My overall message at the TDIO: our three countries can work together to bolster fisheries governance in the Indian Ocean region.

The meeting underlined that an Australia–India–Indonesia trilateral could be a powerful force for change in the eastern Indian Ocean. To take just one more (non-fisheries) example, the Indian navy now has at least one ship permanently stationed at the western approaches to the Strait of Malacca. They often take the opportunity to work with the Indonesian navy in the area. As demonstrated by the recent large RAN Indo-Pacific deployment to the region, there’s a real opportunity for Australia to join in here.

Calling the Chinese bully’s bluff

The more power China has accumulated, the more it has attempted to achieve its foreign-policy objectives with bluff, bluster, and bullying. But, as its Himalayan border standoff with India’s military continues, the limits of this approach are becoming increasingly apparent.

The current standoff began in mid-June, when Bhutan, a close ally of India, discovered the People’s Liberation Army trying to extend a road through Doklam, a high-altitude plateau in the Himalayas that belongs to Bhutan, but is claimed by China. India, which guarantees tiny Bhutan’s security, quickly sent troops and equipment to halt the construction, asserting that the road—which would overlook the point where Tibet, Bhutan, and the Indian state of Sikkim meet—threatened its own security.

Since then, China’s leaders have been warning India almost daily to back down or face military reprisals. China’s defence ministry has threatened to teach India a ‘bitter lesson’, vowing that any conflict would inflict ‘greater losses’ than the Sino-Indian War of 1962, when China invaded India during a Himalayan border dispute and inflicted major damage within a few weeks. Likewise, China’s foreign ministry has unleashed a torrent of vitriol intended to intimidate India into submission.

Despite all of this, India’s government, led by Prime Minister Narendra Modi, has kept its cool, refusing to respond to any Chinese threat, much less withdraw its forces. As China’s warmongering has continued, its true colors have become increasingly vivid. It is now clear that China is attempting to use psychological warfare (‘psywar’) to advance its strategic objectives—to ‘win without fighting’, as the ancient Chinese military theorist Sun Tzu recommended.

China has waged its psywar against India largely through disinformation campaigns and media manipulation, aimed at presenting India—a raucous democracy with poor public diplomacy—as the aggressor and China as the aggrieved party. Chinese state media have been engaged in eager India-bashing for weeks. China has also employed ‘lawfare’, selectively invoking a colonial-era accord, while ignoring its own violations—cited by Bhutan and India—of more recent bilateral agreements.

For the first few days of the standoff, China’s psywar blitz helped it dominate the narrative. But, as China’s claims and tactics have come under growing scrutiny, its approach has faced diminishing returns. In fact, from a domestic perspective, China’s attempts to portray itself as the victim—claiming that Indian troops had illegally entered Chinese territory, where they remain—has been distinctly damaging, provoking a nationalist backlash over the failure to evict the intruders.

As a result, President Xi Jinping’s image as a commanding leader, along with the presumption of China’s regional dominance, is coming under strain, just months before the critical 19th National Congress of the Chinese Communist Party. And it is difficult to see how Xi could turn the situation around.

Despite China’s overall military superiority, it is scarcely in a position to defeat India decisively in a Himalayan war, given India’s fortified defences along the border. Even localised hostilities at the tri-border area would be beyond China’s capacity to dominate, because the Indian army controls higher terrain and has greater troop density. If such military clashes left China with so much as a bloodied nose, as happened in the same area in 1967, it could spell serious trouble for Xi at the upcoming National Congress.

But, even without actual conflict, China stands to lose. Its confrontational approach could drive India, Asia’s most important geopolitical ‘swing state’, firmly into the camp of the United States, China’s main global rival. It could also undermine its own commercial interests in the world’s fastest-growing major economy, which sits astride China’s energy-import lifeline.

Already, Indian Foreign Minister Sushma Swaraj has tacitly warned of economic sanctions if China, which is running an annual trade surplus of nearly $60 billion with India, continues to disturb border peace. More broadly, as China has declared unconditional Indian troop withdrawal to be a ‘prerequisite’ for ending the standoff, India, facing recurrent Chinese incursions over the last decade, has insisted that border peace is a ‘prerequisite’ for developing bilateral ties.

Against this background, the smartest move for Xi would be to attempt to secure India’s help in finding a face-saving compromise to end the crisis. The longer the standoff lasts, the more likely it is to sully Xi’s carefully cultivated image as a powerful leader, and that of China as Asia’s hegemon, which would undermine popular support for the regime at home and severely weaken China’s influence over its neighbours.

Already, the standoff is offering important lessons to other Asian countries seeking to cope with China’s bullying. For example, China recently threatened to launch military action against Vietnam’s outposts in the disputed Spratly Islands, forcing the Vietnamese government to stop drilling for gas at the edge of China’s exclusive economic zone in the South China Sea.

China does not yet appear ready to change its approach. Some experts even predict that it will soon move forward with a ‘small-scale military operation’ to expel the Indian troops currently in its claimed territory. But such an attack is unlikely to do China any good, much less change the territorial status quo in the tri-border area. It certainly won’t make it possible for China to resume work on the road it wanted to build. That dream most likely died when India called the Chinese bully’s bluff.

 

Is a second Sino-Indian border war imminent?

The Sino-Indian standoff in the Doklam (Donglang in Chinese) region of the Himalayas where the borders of China, India and Bhutan converge is now nearly two months old. The dispute arose in mid-June when China attempted to build a road in an area it believed to be under its sovereign control, provoking Indian authorities to block the construction by crossing the Sino-Indian border with troops and bulldozers.

As yet there’s little sign of an end to the standoff. On the contrary, talk of war is now heard from both sides, and Chinese voices, both official and unofficial, are particularly strident in accusing India of ‘invading’ Chinese territory.

How likely is it that the current standoff will escalate into a border war? I’ll first assess the probability from the Chinese side.

That China should want to fight a war with India at this moment seems a highly unlikely prospect. Beijing is about to hold the BRICS summit in Fujian province. That gathering is one of the two major ‘home-field’ foreign policy events of this year, the other being the Belt and Road Initiative summit held in May. A war with India would upset proceedings.

Second, the Chinese Communist Party under the leadership of President Xi Jinping is in the final stage of organising the 19th Party Congress. The once-every-five-years party congress is the most important event in Chinese politics, and President Xi is expected to consolidate his power for a second five-year term. With stability a top priority for Chinese leaders, a war with India would create undesirable complications.

Third, Chinese policymakers can’t fail to notice that China is facing a number of security contingencies along its vast periphery. It’s unclear whether the standoff with India is the most significant. From North Korea to the South China Sea, those scenarios are constantly occupying the minds of Chinese planners.

How important is the standoff with India in China’s overall strategic context? I suggest that, depending on different conceptions of strategic interests and ways to achieve them, the above arguments against war with India can be turned on their head.

First, although the diplomatic success of the BRICS summit is desirable, territorial sovereignty now ranks as one of China’s highest national priorities. The summit will offer a precious chance for President Xi and Indian Prime Minister Modi to find a diplomatic solution. But if no agreement is reached the probability of a military showdown will increase significantly.

Second, an orderly party congress is desirable to further anoint Xi’s power and authority. But a successful limited war fought on Chinese terms won’t necessarily damage that prospect. On the contrary, such a war would rally Chinese elites and the public around Xi, who would be acclaimed the new strategic mastermind.

Third, Chinese moderates will oppose a war with India on the grounds that the national interests involved are nowhere as vital to generate such a forceful response. However, the hardliners, armed with a different set of strategic assumptions, will argue that such a punitive war promises unique strategic benefits. Aside from bending India to China’s will it would send a ripple effect throughout Asia about the new strategic reality of Chinese power and resolve. Moreover, with a weakened US, isn’t this an opportune moment for some strategic surprise? India and the US may have moved closer in recent years, but they aren’t treaty allies. In a war with China, India would fight alone.

In fact, China has been sending highly unusual signals in recent days. On 2 August, the foreign ministry published a 12-page position paper demonstrating India’s ‘invasion of Chinese territory’. From 3 August, within a 24-hour period, six organisations—the People’s Liberation Army Daily, the Xinhua News Agency, the foreign ministry (a second time), the defence ministry, the Chinese embassy in New Delhi, and the People’s Daily—delivered a barrage of warnings to India about the dire consequences of underestimating Chinese resolve.

In a speech marking the 80th anniversary of the founding of the PLA on 1 August, Xi sternly affirmed:

We will never permit anybody, any organisation, any political party to split off any piece of Chinese territory from China at any time or in any form. Nobody should nurse any hope that we will swallow the bitter fruit of harm to our national sovereignty, security and development interests.

If China is mobilising domestic support for a possible showdown, that will make any future compromise hard and costly and, consequently, a punitive war more attractive and acceptable. By now key Chinese elites and the public are convinced that India has ‘invaded’ Chinese territory and that a short, sharp war to expel Indian ‘invaders’ would be just and appropriate.

None of the above is to suggest that war is about to break out next week or next month. Chinese leaders will have to weigh the cost–benefit calculus before making the final call. One hopes that deft diplomacy will prevail—as has been the case since the last border war of 1962. But one shouldn’t rule out the possibility of conflict. Neither China nor India should be complacent about the current situation or underestimate the consequences if war does break out.