Amid the drifting winds of geopolitics, one thing has remained a constant in the India-subcontinent. The consistency of the long-standing Bharat-Bhutan relations anchored in mutual trust, goodwill and understanding.
The recent back-to-back
visits between the leaders of both countries within a span of less than 10 days
invariably hint at an exigency and solemnity. After assuming office in January
2024, Bhutan Prime Minister Tshering Tobgay embarked on a five-day visit to
India in line with traditional keeping between both countries on March 14.
Accompanied by a delegation of Ministers of Foreign Affairs, trade, industry
and other senior officials, besides holding restricted and delegate level
meetings with PM Modi, Bhutan PM Tobgay met business leaders of India at Mumbai1.
Honouring
the invitation of the Bhutanese King, PM Modi announced a two-day visit to the
Land of Druk amid the thick of electioneering. This marked departure, of
heading on a foreign visit after the announcement of general elections, a
rarity, signifies the importance India attaches to Bhutan. Besides the
political mileage, the government is equally focused on the strategic
importance of the powerplay in the precarious Himalayan contours. Within
India’s neighbourhood, Bhutan occupies a special position both in terms of
relationship and national and security interests. The security interests of
India and Bhutan are deeply intertwined.
Cherishing
the special relations, PM Modi who began both his terms by making his first
visits to Bhutan has made his last foreign trip in the second term to the Land
of Druk. The high-level visits which began with the Foreign Secretary’s visit
to Bhutan immediately after elections are now followed up by PM Modi. It is no
secret that the elephant in the room in the conservations between India and
Bhutan is undoubtedly China.
Being a
guided democracy with a constitutional monarchy in charge of defence, security
and economy, the fundamentals of the foreign policy are largely unchanged.
Clearly, the foundation of India-Bhutan relations is the India-Bhutan
friendship treaties of 1949 and 2007. Unlike the countries in the
neighbourhood, besotted by ‘small country syndrome’, Bhutan sandwiched between
two emerging powers has refrained from the hedging game. The successive Druks,
perceptive of Mao’s five-fingers policy have maintained a continuity in foreign
policy. Communist China embraced warlord Zhao Erfeng’s dream of controlling Tibet
which is the putative right-hand palm along with the five fingers- Ladakh,
Sikkim, Arunachal Pradesh, Nepal and Bhutan on its periphery.
Aware of
China’s ambitious territorial claims to the entire Himalayan terrain and after
the 1962 Indo-China war, Bhutan has made amendments to its isolationist policy.
In 1971 Bhutan became a UN member and recognised PRC but didn’t establish
diplomatic relations. China has always been forbidding about India’s primacy in
Bhutan’s foreign policy. As per some records, Bhutan and China held the first
bilateral talks in 1981. The border talks between both countries over the
largely un-demarcated region between Tibet and Bhutan began in 1984. As of
October 2023, Bhutan and China held 25 rounds of talks and 13 Expert Group
Meetings (EGMs). In October 2021, Bhutan and China signed a Three-Step Roadmap
(TSR) and at the 13th EGM held in October 2023, the countries agreed
to set up a Joint Technical Team (JTT) for delimitation of the border between
both countries.
The official
boundary talks have been an attempt to create an illusion of formal,
negotiations as Beijing has been surreptitiously salami-slicing Bhutan’s
territory in the North by sending herders for grazing. Bhutan has been
test-case for China’s aggressive incursion tactics. Giving into China's
unrelenting claims, Bhutan has voluntarily relinquished its control to the Kula
Khari area in the north citing Cartographic error2.
In 1996
China offered a ‘package deal’ of ceding claims to the uninhabited and
glaciated Pasamlung and Jakarlung areas of 495 sq. km territory in favour of a
strategically important watershed 269 sq. km region in the West comprising
parts of Doklam, Charithang, Dramana and Shakhatoe. Eyeing easy access to the
Indian Ocean Region through the Chicken Neck Siliguri region, China has cajoled
Bhutan. Sentient of India’s national interests, Bhutan turned down the offer.
Siliguri is
pivotal for India’s territorial security and serves as the connecting bridge
between Mainland India and the Northeastern region. Leveraging Doklam China
wants to put India on the back foot. Doklam overlooks the Siliguri region.
Chinese access to this region can put India on the defensive.
Through the
boundary talks, Bhutan has explicitly reiterated that they are largely
restricted to the northern territories of Bhutan with the demarcation of the
Doklam to be resolved by all the three parties- India, Bhutan and China.
China’s nefarious attempts to build roads up to the Jhampheri Ridge adjoining
the Doklam trijunction has triggered the 73-day Doklam standoff. Insidious
incursions into the Doklam trijunction have completely exposed the expansionist
strategy of China. It was also an indirect attempt to drive a wedge between
India and Bhutan by exerting pressure on the smaller country.
To coerce
Bhutan, in June 2020, China laid claims to the 650 sq. km Sakteng sanctuary in
Trashigang district which abuts the Tawang district of Arunachal Pradesh.
Bhutan vociferously refuted these claims and successfully frustrated Chinese
attempts. Subsequently, Bhutan and China expedited boundary talks. In 2023,
both countries held 11th, 12th, and 13th EGM.
Apprising the details of the mechanism, King of Bhutan Jigme Khesar Namgyal
Wangchuk visited India twice last year- April 2023 and November 2023.
As is
Chinese won't, alongside the boundary negotiations, Beijing has intensified its
stealthy incursions into Bhutan. Besides, intensifying the infrastructure
development close to the Doklam region, as a part of the Xiaokong or ‘Moderate
Prosperity Border Village Programme’ of President Xi Jinping, China is rapidly
constructing new villages as far as 3 km inside Bhutan territory.
South China
Morning Post reported that on December 28, 2023, 38 households from Tibet’s
Shigatse have moved to the newly constructed Tamalung village3.
Satellite images also confirmed the doubling of constructions in the expanded
village which are now doubling as ‘citadels’- to strengthen border security and
poverty alleviation. Similarly, another village adjacent to Tamalung, Gyalaphug
village has witnessed a rapid increase in the number of dwellings.
In
contravention of the first peace agreement between countries in 1998 that
recognised Bhutan as a sovereign country- “Maintain Peace and Tranquillity on
the Bhutan-China Border Areas”, and desisted the unilateral change to the
border status quo, China is transgressing the borders. After the 1998
agreement, China has insisted on expanding engagement, especially towards
developing trade and formal diplomatic relations.
Subsequently,
China made inroads into Bhutan and continues to dominate the crucial telecom
sector. Huawei has been operating in Bhutan since 2009. Currently, China
accounts for a quarter of Bhutan’s trade. Weaponising trade and tourism, China
is exerting tremendous pressure on Bhutan to establish formal diplomatic ties.
Bhutan is to
India what Tibet is to China. India is challenging China by standing up to its
bullying tactics. Beijing considers Bhutan as India’s soft underbelly. Having
adopted a no-holds-barred approach, China is going ballistic by unleashing a
previously subdued ambitious expansionist agenda. China is provoking the Philippines
in the South China Sea, intensifying drills along the Taiwan Straits, increasing
intrusions into the Sea of Japan, making forays into the Indian Ocean and prolonging
de-escalation along the LAC. Hence, expectedly the China angle is prominently
finding space in India-Bhutan relations.
The post-COVID
recovery of Bhutan’s economy is rather tepid with the country witnessing slow
growth, high inflation, high urban youth unemployment and growing
“outmigration” of the working population to the most favoured destination- India
followed by Australia. Foreign reserves are dwindling barely meeting the
mandated constitutional requirement to cover 12 months of essential imports4.
The government has indeed, imposed a ban on vehicle imports to maintain
adequate reserves.
Avowedly
committed to green economy and sustainability, striking a balance between the
conservation agenda and economic recovery, Bhutan King launched the “Gelephu
Mindfulness City” in December 2023, a separate administrative zone with
investor-friendly laws. Planned along the lines of Saudi’s Neom and Indonesia’s
Nusantara, the Gelephu lying along the Assam border is landlocked. Hence Bhutan
is primarily dependent on India regarding infrastructure for trade and
transport. During high-level reciprocal visits, leaders of both countries
reviewed the full spectrum of bilateral cooperation and regional issues of
mutual interest5.
Countries
have initiated and launched projects that are in line with the Indian
aspirations of becoming a developed country by 2047 and Bhutan’s vision of progressing
into a high-income nation by 2034. India hailed Bhutan’s vision of the Gelephu
Mindful City and promised to support the initiative that adeptly integrates the
goal of economic prosperity in a sustainable manner to strengthen economic and
investment linkages.
To propel
investments and connectivity, particularly to prop up Gelephu as an investment
destination, countries have initialled a text for MoU on the establishment of
Kokrajhar in Assam to Gelephu and Banarhat - Samtse rail links. Countries have
opened additional points for immigration and trading routes. Ahead of Bhutan PM
Tobgay’s India visit, Bhutan announced interest in rejoining the
Bangladesh-Bhutan-India- Nepal Motor Vehicle Agreement (BBIN-MVA).
Both sides
signed a slew of MoUs including those for the supply of Petroleum, oil,
Lubricants (POL) -from India to Bhutan; recognition of products by the
regulatory agencies- Bhutan Food & Drug Authority (BFDA) and Food Safety
and Standards Authority of India (FSSAI); cooperation in sports and youth,
space cooperation, pharmacopoeia, peering agreement between National Knowledge
Network of India (NKN) and Druk Research and Educational Network. In tune with
green economy objectives, a cooperation agreement is signed on energy
efficiency and energy conservation measures through capacity development,
information exchange on policies, research and technologies6.
PM Modi
congratulated Bhutan for graduating from Least Developed Countries in December
2023 and pledged Rs 10,000 crores over the next five years. Bhutan thanked
India for the Rs 5000 crore development assistance to its 12th Five
Year Plan (FYP). India’s economic stimulus would include the development of
infrastructure for the seamless movement of goods and services; enhancing rail,
air, digital connectivity and in agriculture, healthcare, education, startups,
STEM, skilling and cultural preservation, education sector.
During PM
Modi’s visit, countries have forged an energy partnership giving a huge fillip
to the hydropower cooperation, a vital pillar of bilateral economic
partnership. The partnership besides providing necessary access to financing
and financial institutions for power sale, sub-regional energy cooperation will
enable seamless cross-border trade in electricity7.
Hydropower
cooperation has been an important pillar of the India-Bhutan bilateral economic
partnership. Now countries have agreed to expand cooperation to non-hydro
renewables like solar, wind and green initiatives for hydrogen and e-mobility
and called for expeditious consultation on the planned projects- 1020 MW
Punatshangchhu-II.
Unlike the
coercive mercantilist relationship of the Northern neighbour, the guiding
mantra of Bharat-Bhutan ties is mutual benefit. The developmental partnership
is a happy confluence of “sabka saath, sabka vishwas, sabka prayas” and
Gross National Happiness. The exemplary friendly ties have been a source of
strength for both countries which have agreed to continue close coordination
and cooperation with each other on issues related to national interests.
The enduring
partnership anchored in common values as well as shared cultural and spiritual
heritage has now incorporated the doctrine of “Together for Progress and
Development”. In recognition of PM Modi’s contribution to strengthening
India-Bhutan ties, the Order of Druk Gyalpo, the highest civilian decoration announced
in December 2021 during Bhutan’s 114th National Day Celebrations was
presented by Bhutan King Jigme Keshar at a ceremony in Thendrelthang, Thimphu 8.
Reinforcing that Bharat for Bhutan and Bhutan for Bharat is an abiding reality,
PM Modi pledged India’s commitment to a transformative partnership with Bhutan.
The long-standing
exceptional bilateral ties between India and Bhutan is a touchstone of India’s
Neighbourhood First policy. In appreciation of Modi’s State Visit amid domestic
commitments and crucial elections, Bhutan PM Tobgay received him at the airport
and extended an exceptional warm ceremonial welcome. Indeed, Bhutan people
lined up along the entire stretch of 45km from Paro to Thimpu. In a first for
an Indian Prime Minister, the Royal Family has hosted PM Modi at K5 residence,
Lingkana Palace for a private dinner. As a special gesture, the King of Bhutan
and Bhutan's PM came to see off PM Modi at the airport.
Invoking
civilisational ties and historical links India is bolstering friendships and
cementing economic and development partnership with the immediate
neighbourhood. India is stymieing Chinese overtures with mutual understanding
and goodwill.
In a post on
X, PM Tobgay wrote, “A big thank you to my brother, PM @narendramodi Ji, for
visiting us. Neither his busy schedule nor inclement weather could prevent him
from fulfilling his promise to visit us. This must be #ModiKaGuarantee
phenomenon!”. By standing with Bhutan in the wake of Chinese intimidation,
India has signalled its commitment to promoting the interests of neighbours and
adherence to Security and Growth for All in the Region (SAGAR). India’s timely
economic support to Sri Lanka and steadfast relationship with Bangladesh is a
case in point.
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