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Regional Governance Architecture FES Briefing Paper February 2006 Page 1

New Powers for Global Change?

India’s Role in the Emerging World Order

UMMU SALMA BAVA


India’s Role in the Emerging World Order FES Briefing Paper 4 | March 2007 Page 2

Summary
Till recently, India was viewed predominantly as a poor developing country and had a low visibility on
the global political and especially global economic front. However, since the last decade India appears
to be writing a dynamic new future for itself. The author examines how India’s emerging economic
status in Asia and on a global level is redefining its self-image and its perception, leading to a new
political role. She analyses the interests and motives that guide India’s foreign policy and the strategies
it has adopted which have the potential to shape the international order. India, traditionally a
prominent leader of the South, is transcending that role to play a larger global role which is endorsed
by both the United States (US) and the European Union (EU) in their respective Strategic Partnerships
with India.

1 India’s Perception of its Role in perception of itself but the world’s perception of
International Politics India. On the economic front India is still mana-
ging the transition from a developing country to
The 21st century is touted to be the Asian age,
a developed one. Although China has shown
belonging to China and India. The end of the
outstanding performance and has a 20-year lead
Cold War and the growing impacts of globalisa-
over India in hard infrastructure, India’s perfor-
tion are also making India redefine its position
mance in soft infrastructure, with its exceptional
and role both at the regional and at the global
growth in the IT sector, has changed the percep-
level. Since the economic liberalisation of the
tion of the Indian economy to a major extent.
1990s, which lead to growth rates of 6-7 per-
India, with its good legal structure, corporate
cent p.a., India's global presence has been stea-
governance, banking system, financial sector,
dily visible. Two issues are shaping India’s rise –
property rights security, its skilled manpower
the political dividend it has garnered as the
and young work force, has become the new
world’s largest democracy and its growing eco-
economic icon of the emerging powers. In com-
nomic status, which, according to projections,
parison to China, which has drawn in higher le-
will cause it to emerge, along with China, as a
vels of Foreign Direct Investment (FDI), India’s
key economic driver of the future. India, the
development model is managing to deliver long
acknowledged leader of the South, is transcen-
term economic payoffs at much lower levels of
ding that role to play a larger global role, a deve-
investment. In an increasingly networked world,
lopment that is endorsed by both the US and the
India is a brand leader enabling a technologically
European Union (EU) in their respective Strategic
networked world.
Partnerships with India. But this is an ongoing
process, not a signpost, and so it is important to Politically, India views itself as a responsible nuc-
examine the political and economic values the lear power that, unlike its neighbour Pakistan,
new evolving India endorses in the context of has not been a source of nuclear proliferation.
global governance (multilateralism, political and Its long-held democracy record and its internal
economic values and international security). fight against terrorism have found resonance
among both the Europeans and the US. In the
To assess where India is headed today, it is im-
aftermath of 9/11 India was quick to offer over-
portant to look at the period immediately after
flight rights and bases to the US, which signalled
independence in 1947, especially the first 10-15
its new intent in foreign policy. This offer
years. India was active with its soft power ap-
acknowledged that India was engaging the US
proach and played a significant role in the deco-
differently, a significant step in the light of the
lonization process. The country was also active in
difficult India-US bilateral relationship throug-
international institutions like the United Nations
hout the Cold War.
as well as in leading the Non-Aligned Movement.
This was due to Jawaharlal Nehru’s, India’s first Asia has many players and contenders to be its
Prime Minister, vision of India- a blend of the re- leader both regionally and globally. From within
alist and the idealist – that as a big country with the region China, India and Japan are the key
a long civilisational history, India was not merely actors, while the US is the most dominant outsi-
a regional but also an international power. Ho- de stakeholder in the region, followed by Russia.
wever, India’s foreign policy choices were cir- And at the second level there are many natural
cumscribed by Cold War politics that defined its resource rich states and nuclear states in the
political, economic and security relations with making that can potentially alter the power dy-
other states. Post-Cold War global politics is wit- namics in the region all the way from West Asia
nessing changes in power equations between to the Asia-Pacific region.
and among states and India is no longer contai-
It is in this context that India’s engagements
ned in South Asia by the Cold War rubric. Indian
with the regional and global levels are seen re-
nuclear testing in 1998 and a steadily perfor-
flected in four sets of relationships. These enga-
ming economy have changed not only India’s
India’s Role in the Emerging World Order FES Briefing Paper 4 | March 2007 Page 3

gements also reflect the structural changes in The fourth set is the engagement with Latin
world politics, especially the fluidity in the emer- America (long ignored earlier) and Africa, where
ging power hierarchy and India’s changing poli- India is actively pursuing its energy requirements.
tical, economic and security requirements.
India’s potential to play a global economic, poli-
First, there is the immediate region of South Asia, tical and security role depends on developments
where India shares a border with 6 other count- in the international structure and regimes, regi-
ries (Pakistan, Nepal, Bhutan, Bangladesh, Sri onal stability and its own domestic economic
Lanka, and Maldives) which together constitute growth and internal political stability. At the
the South Asian Association of Regional Coope- domestic level, Prime Minister Dr. Manmohan
ration (SAARC). Recently Afghanistan has been Singh, in various speeches, has identified the
invited to join the SAARC. Because of the vari- major concerns that will challenge sustained
ous accoutrements of power, sizes of population, economic growth: revitalisation of the rural eco-
history, civilisational role etc., India is the major nomy, education, health, rural and urban
undisputed power in South Asia. However, In- infrastructure, environmental degradation, revi-
dia’s leadership of the region is not accepted talising the state institutions for better and en-
unequivocally. While India considers herself to hanced delivery of essential public services,
be status-quoist, the neighbours think of India as upgrading the financial system for better global
the ‘big brother’. Pakistan, with whom India has integration, a better regulatory system. At a re-
shared a very tumultuous history since 1947, has cent Leadership Summit organised by the
persistently challenged this leadership and was newspaper Hindustan Times in November 2006
aided by the Cold War configuration wherein it in New Delhi, he emphasised that ‘We need a
was supported by the US. Since the last flash- polity which is inclusive, equitable, caring and
point in May 1999 (after both countries had go- just. We need a social order which every citizen
ne nuclear), India-Pakistan relations have impro- owns and is proud of’. Briefly, the challenge is
ved, especially since early 2003 with the peace the transformation of the economy, including
process. In contrast to its pre-1990 foreign policy, upgrading of hard and soft infrastructure,
India is now engaging its neighbours differently. coupled with improved human resource deve-
It is coordinating with external actors, as in the lopment and governance. Further, management
case of Nepal and Sri Lanka. Regional conflicts of the social turbulences which will result from
have also prevented South Asia from emerging all these economic revolutions is critical to India’s
as a strong economic entity and impeded the success as a global actor. Externally, what is
economic benefits to the countries. Thus the un- significant is the changing dynamics of the Asian
certainty of the peace process with Pakistan and region, especially given that its security and eco-
of a region that is still enmeshed in conflict has nomic architecture is still emerging. Against this
the potential to keep India tied to South Asia. backdrop the relations between India, the US,
Pakistan, China, Russia and Japan have the po-
The second set is with the major Powers – US,
tential to develop in different directions. Thus
EU, China, Russia and Japan. In particular the
India’s perception of its own role and the per-
presence and role of the US and China influence
ception of the others is evolving and shifting.
the political dynamics and strategic stability of
South Asia and thus constitute a part of the first
2 Factors Influencing India’s Foreign
set of relationships. As China emerges as the
Policy
pre-eminent player in the Asia-Pacific region,
many analysts in the US are speculating over The major objective of India’s foreign policy has
whether India could be a balancer to China in been to secure for itself strategic autonomy so
the region. However, India’s Strategic Partners- that it can pursue its national interest. India's cri-
hip with the US and the EU are signs of India tical security concerns are:
coming into her own and being recognised as an
• external security
important contemporary and future partner.
• internal security
The third set of relations reflects an expanding
set of networks with South-East Asian countries • sustained economic growth
(aimed at enhancing trade and economic relati-
• energy security
ons), and West Asia and Central Asia (focused
on strengthening and further securing India’s • maritime security
energy security). This also covers the Indian Oce-
• access to technology.
an and littoral.
India’s Role in the Emerging World Order FES Briefing Paper 4 | March 2007 Page 4

This strategic autonomy is related to the interna- India translates these into usable intentions ser-
tional system, and one critical question for India ving its interests that will be very critical, and this
is what kind of international system would be is where the intellectual power of the country
beneficial to it. India would like a world that is becomes important.
non-polarised and non-hegemonic – an aspirati-
In India, foreign policy making has long been the
on no doubt – for these would maximise Indian
purview of the government; limited to the Prime
autonomy.
Minister and a few ministers. The role played by
Both India's security concerns and its relations- the Ministry of Defence in policy articulation has
hips to the region and beyond have to be vie- not been great. Since the business, the political
wed within two global contexts: hegemony and and the intellectual elite have been separate
globalization. As the sole military hegemon, and groups and not co-terminous with the political
still one with a powerful economy, the US is the parties, this has, however, allowed for a wide
dominant military actor globally and in the regi- range of opinions to be voiced. Further, with a
on as well. A factor working counter to this con- diversified ideological and social base, the politi-
centration of power, globalization is leading to cal parties and civil society have been party to
networked interdependence, especially in the many foreign policy debates. With coalition go-
economic sphere, as well as to a diffusion of vernments being the norm today, it is not an ea-
power. It is also impacting on the ability of the sy task to build consensus on all foreign and
state to shape and mould the process as the sta- domestic policy issues. Further, with the rise of
te is no longer the primary actor. India was regional political parties, which are smaller but
brought up on the concept of "balance of po- powerful in determining political outcomes, de-
wer", and this no longer applies today. Both in- cision making is becoming more splintered. E.g.
ternational trade and the international economy the recent India-US Civil Nuclear Deal 2006
highlight that we are in an age of "power of (which will bring to an end the technology
dependence". drought India has faced since the test) drew wi-
despread criticism in India from within and out-
In order to address its security concerns, India
side the government, the nuclear establishment
has used a combination of domestic and societal
and scientists, the opposition political parties,
policies and foreign policy factors. In the case of
and civil society. Similarly, the country’s econo-
internal and economic security, economic mo-
mic modernization and liberalisation programme
dernization has been driving the policy impetus.
is proceeding slowly, primarily due to political
Of course one has to disaggregate the 9 percent
and ideological differences on the extent of state
economic growth to see how the non-
participation and privatization on the one hand
performing sectors, especially agriculture, may
and a lack of vision, political will and bureaucra-
lead to a major food security problem and social
tic roadblocks on the other. Increasingly, one
turbulence. India’s demography will become an
sees a disjunction between India’s current and
asset only with inclusive growth, with vigorous
potential global economic and political role.
investment in health, education and infrastructu-
While in the economic area India is exploding,
re that link the market needs with skill building
the mindset change in politics has been slower.
in the young workforce. In order to enhance ex-
Thus building domestic consensus for India’s po-
ternal security, focus is also being given to de-
litical, economic and security concerns within a
fence modernisation and upgrading of weapons
democratic framework has been challenging and
systems, with an inclusive nuclear doctrine based
has been reflected in the kinds of strategies
on minimum deterrence and a ‘No First Use’ po-
adopted by governments.
licy. The question of how military modernization
affects political stability in Asia will become even
3 Foreign Policy Strategies Adopted
more critical as defence spending across Asia
by India to Enhance its Role in
steadily increases. At the foreign policy level,
International Politics
there have been efforts to enhance regional sta-
bility, and to expand India’s outreach beyond The BJP-led government’s decision for nuclear
South Asia into South-East Asia and Central Asia. testing in 1998 catapulted India to global atten-
Likewise, are the growing partnerships with the tion and to the first rungs of the major powers,
US and the European Union. These policy efforts as some Indian analysts argued. Since the nuc-
are aimed at enhancing India’s hard and soft lear tests, there has been a new assertiveness in
power capabilities and capacities, which will en- Indian foreign policy. It is not that the successive
sure its strategic autonomy and also help to Indian governments have renounced the Nehru-
achieve great power status. However, it is how vian view of world politics. But along with the
India’s Role in the Emerging World Order FES Briefing Paper 4 | March 2007 Page 5

high ideals and the strong self-image espoused also fits in with India’s strategic vision of the In-
by Nehru, there is a new-found pragmatism and dian Ocean, where it defines its maritime securi-
confidence. India seeks to project itself not only ty as extending from the Gulf of Hormuz in West
with words and ideals, but with a growing eco- Asia to the Straits of Malacca in South-East Asia
nomic power registering a steady 7-8 percent – a fact reiterated also in the Ministry of Defence
growth in the last few years. And more signifi- Annual Report. This large maritime zone is home
cantly, India is increasingly moving from the po- to some of the World’s busiest sea lanes for oil
wer of the idea to the new argument, which is and raw materials, both of which are critical to
to augment economic and political power. India’s sustained economic growth and thus lin-
ked to her economic security. Further, the role of
Freed of the structural limitations of the Cold
Indian diasporas, which are economically strong
War, India is seeking to build strategic political
and visible, and a growing political conscious of
and economic alliances at the bilateral, regional
its influence in the US and Great Britain is ear-
and global level that hold promise of rich securi-
ning India valuable political and economic mi-
ty dividends. Indian foreign policy, which during
leage.
the Cold War was marked by Non–Alignment,
today appears to be pursuing a policy of neo- Consequently, even as India increases its diversi-
non alignment – i.e. engaging many to meet its fied regional presence, it is speaking in a new
different security requirements. The key to India voice which is not representative of just the
projecting itself beyond the region is to have and Third World. As a state in transition to a new
ensure stability in the region. In South Asia it is identity and role, it seeks to articulate its natio-
engaging its neighbours both bilaterally and, nal interest but also to speak for development is-
more so, within a regional framework (SAARC), sues. The challenge for India is that it cannot be
in order to achieve its other foreign policy objec- a regional or global actor and sit on the fence;
tives. There has been a steady improvement of rather, it will increasingly be called upon to take
relations with all the neighbouring states and a political stand, as in the case of Iran on the IA-
this augurs well for India. The peace process EA vote. India’s foreign policy today demonstra-
with Pakistan in the West and the border talks tes an increasing tempering of idealism with
and increased trade with China in the East are pragmatism and it continues to pursue a multila-
bringing new dividends and operational space teral and a rule based global governance.
for India.
4 Implications for the World Order
India’s efforts at engaging the regional levels ha-
ve been more noteworthy. It has sought mem- In a globalised world, just as India engages the
bership and representation (even if it only as an world, India is also being engaged by the world.
observer) in regional organisations in South-East The most dramatic transformation has been in
Asia and Central Asia that seek to project India the India-US relationship. Freed from Cold War
into the region and also to facilitate alliance rhetoric, these two countries have moved from
building. These efforts have been driven by both being ‘estranged democracies’ to ‘engaged de-
political and economic considerations. India’s mocracies’. The new dynamism in the India-US
‘Look East” policy has brought it substantial visi- relationship is so profoundly different that the
bility in South –East Asia (a region which is inc- US, for the first time in its bilateral relation with
reasingly being influenced by China), with mem- India, is engaging it as totally de-hyphened from
bership in ASEAN and the ASEM. Some analysts Pakistan. Second, it is pursuing a Strategic Part-
say that this not only confirms India’s increasing nership with India that endorses India’s current
economic presence but is a welcome move by and future potential for the region and the
the ASEAN countries to counterbalance China. world. Third, the India-US Civil Nuclear Deal de
After all, China is part of all the regional organi- facto recognises India as a nuclear power and
sations, from ASEAN and ARF to the East Asia has secured for it exemptions from the current
Summit (EAS), and is expanding its influence in nuclear regime. In other words, India has been
Central Asia as well as through the Shanghai engaged on its own terms. But the major ques-
Cooperation Organisation (SCO). It is interesting tion is, Will this be an ‘enduring partnership’?
to ask here whether India has become de-
This is important as the US and Europe / EU are
hyphenated from Pakistan, but only then to be
engaging the two emerging powers – China and
hyphenated with China? India does not view this
India – which are pursuing two very different po-
as a counterbalancing move, but looks at the re-
litical and economic models of growth. India’s
gion, with which it has had long historical and
strength and its ideational proximity to the West
trading links, as a natural trading partner. This
lie in its being the world’s largest non–Western
India’s Role in the Emerging World Order FES Briefing Paper 4 | March 2007 Page 6

democracy. India has successfully integrated its rules of global governance? The UNSC and the
pluralism and diversity with institutionalised de- G-7 are not reflective of the current economic
mocracy that has the potential to be a model for and political potential and capabilities of the
others. world’s states. It is an endorsement of the past.
Two issues are critical here – one, for the old or- India’s pursuit of closer ties with its neighbours
der, the US and Europe – the issue of integrating in the region and with key external actors in the
the rising powers. Second, for the emerging region is not haphazard. Rather, and as one
powers – India – the issue of what it might do would expect, India is systematically targeting
with its new position, what type of power India states that will bring it specific and tangible se-
aspires for and the kind of linkages that the go- curity, political and economic benefits. To its ad-
vernment has in mind to enhance its stature and vantage, China has a dynamic region around it –
power. India’s pursuit of a nuclear power status Macau, Hong Kong and South Korea – that are
and a permanent seat on the UN Security Coun- fuelling growth and the transformation of bu-
cil has raised the question of whether it is a fol- reaucracy that will enable it to be the architect
lower of global norms or a contender to change of its new destiny. India’s challenge is the lack of
the post-World War II status quo. Again, two is- such a dynamic immediate neighbourhood and
sues are discernible here. First, do the emerging the existence in India of a rigid bureaucracy.
powers – China, India, Brazil and South Africa –
India’s engagement at the international level –
want to take on and challenge the established
here it has an intrinsic national interest to see
international system – to confront it? Or do they
peace and security in as large a region as pos-
want to work together with the established he-
sible. That is one reason why India has participa-
gemon by cooperating with it.
ted in UN efforts to promote peace and peace-
India’s foreign policy shows a mix of balancing keeping. India aspires to a multi-polar, rule ba-
and hedging of interests, while some analysts sed, multilateral system. However, it is India’s
would like to call the new India-US partnership political and economic relations with the existing
bandwaggoning with the hegemon. However, major powers and emerging powers that will
unlike the military hegemon – the US – India is have a major impact on future global political
not a security provider, guarantor or balancer. and economic governance. India’s foreign policy
India will enter into a security provider role only looks beyond the neighbourhood to secure its
within the UN framework, which endorses the economic interests – especially access to raw
principle of global governance based on multila- materials and energy supplies – both of which
teralism. However, current institutions of global can put it on a competition course with China,
governance – be they the actors or the rules – especially in Central Asia and Africa. For other
are a product of World War II and do not reflect countries, China and India jointly represent a
the current changing geopolitical situation. The new emerging challenge called ‘Chindia’. As
asymmetry between states is reflected even in both these Asian powers come into their own,
institutions of global governance. It is for this the question as to whether they will endorse
reason that India seeks to create a new multila- current global governance or seek to mandate
teralism – like IBSA (India, Brazil and South Afri- their own rules is open to speculation. Assess-
ca) even if it is restricted to the global South. In- ment of Indian foreign policy today shows that it
dia seeks a South–South alliance on develop- seeks to enhance its power and influence by en-
ment issues because there is a North-South divi- hancing bilateral cooperation with the US, Euro-
de on the trade and economic development pe/EU, China, and Russia as well as by engaging
agenda. India’s pursuit of a permanent UNSC and participating in regional arrangements and
seat is seen in the region and outside as a pursu- international organizations and skilfully using its
it of national interest (wanting veto power) and soft power. Its growing cooperation with Israel,
not as an attempt to change the system. Rather, especially in the military field, and continued re-
India wants to be like one of the Permanent Five lations with the Arab world showcase the fine
Members. Some see India as a reluctant hege- tuning between its external and internal security
mon unwilling to engage, claiming that this will concerns.
not be congruent with the global presence it
There is increasing evidence that civilisational
seeks to project.
states like China and India will be players in
One is challenged to ask, If America broke away changing world politics. However, India’s securi-
from the established norms, how likely is it that ty strategy is still evolving. The absence of a co-
at some point the two emerging actors – China hesive security strategy will slow down India’s
and India – would also like to develop their own ability to transform itself into a major global ac-
India’s Role in the Emerging World Order FES Briefing Paper 4 | March 2007 Page 7

tor. The evolving international order is going to The Author:


be Asia centred and polycentric for a variety of
Dr. Ummu Salma Bava is Associate Professor and
reasons. Since India's interests encompass far
Coordinator of the Netherlands Prime Minister’s
more than just the region mentioned, it is thus
Grant and Director, UGC – Europe Area Studies
in its interest to shape that Asia centred century
Programme in the Centre for European Studies,
into a more co-operative space. India has to pro-
School of International Studies, Jawaharlal Nehru
ject itself as a confident and dynamic country
University, New Delhi, India. Email:
that is ready to play a larger role to ensure stabi-
usbava@gmail.com.
lity, security and peace in the world.

Selected further FES publications on "New Powers for Global Change"


• Challenges for International Development Cooperation: The Case of China
Katharina Hofmann
Briefing Paper 15-06, FES Berlin, November 2006

• South Africa's Global Strategy and Status


Chris Landsberg
Briefing Paper 16-06, FES Johannesburg, November 2006

• China's Role in the Emerging World Order


Hans J. Giessmann
Briefing Paper 13-06, FES Beijing, October 2006

• Egypt's Foreign Policy in Global Change -


The Egyptian Role in Regional and International Politics
Mohamed Kadry Said
Briefing Paper 11-06, FES Cairo, October 2006

• Mexico – a Reluctant Middle Power?


Olga Pellicer
FES Briefing Papers, FES New York, June 2006

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