VIETNAM-INDIA: TIME TO MAKE PARTNERSHIP TRULY STRATEGIC
By Dr. Subhash Kapila
Introductory Background
Vietnam has always been viewed and analyzed by this author in terms of perspectives as a nation most deserving with which India could and should foster the forging of a substantive strategic partnership.
With this in view, more than five years back, this author, brought this relationship in focus in his paper on this website entitled: “India-Vietnam Strategic Partnership: The Convergence of Interests” (
http://saag.org/papers2/paper177.html) dated 1.10.2001. After a detailed analysis, it was concluded that:
* “Such a strategic partnership is in India’s national security interests and India should not fight shy of proclaiming it as such.”
* “Vietnam has already declared (through its President Tran Duch Luang) that ‘Vietnam treats India with strategic importance’.”
The BJP Government through the visits of Defense Minister Fernandes (five day visit) and later of Prime Minister Vajpayee did put India on the road towards a strategic partnership with Vietnam.
However, with a change of Government in India, it was becoming discernible that the Congress Government’s approaches to this partnership were more routine and economic and less strategic. This author was therefore prompted to place on this website another paper on the subject “India-Vietnam Strategic Partnership Needs Political Impetus From India” (
http://saag.org/papers14/paper1397.html) dated 01.06.2005.
This paper re-analyzed the continuing strategic importance of Vietnam to India and the way ahead. Relevant for purposes of discussion in the present paper, one would like to reproduce the introductory and concluding paragraphs of that paper:
* “India’s upward rise on the trajectory of a rising key global power carries with it an important responsibility. The Indian foreign policy establishment and the Indian Government of the day should acutely remember that in the process of rising stardom, India does not forget its traditional friends of long standing.”
* “Vietnam is one such country that deserves special consideration by virtue of the geo-strategic importance, potential to be a regional power and convergence if strategic interests with India.”
* “Sustaining the India-Vietnam strategic partnership needs re-affirmation of its value by the new Indian Government and by adding political impetus to it in visible terms.”
The recently concluded 13th Vietnam-India Meeting (February 27, 2007) between Vietnam’s Deputy Prime Minister and Foreign Minister Pham Gia Khiem and Indian Foreign Minister Pranab Mukherjee, was focused on trade, economic and science and technology aspects. Such a meeting of Foreign Ministers of the two countries ideally should have emphasized the strategic aspects too.
One would now avidly watch the visit of the Vietnamese Prime Minister to India in April 2007 to see whether India emphasizes the strategic partnership or fights shy of reiterating it.
It needs to be recalled that following Prime Minister Vajpayee’s visit to Vietnam in 2001, the BJP Government signed in 2003 the “Joint Declaration on Framework of Comprehensive Cooperation Between Republic of India and the Socialist Republic of Vietnam As They Enter The 21st Century”. It was emphasized that in addition to other things, India and Vietnam would take steps to expand cooperation in security and defense.
The Foreign Ministers’ (27 Feb 2007) meeting statement spoke of “Two sides agreed to raise traditional relationship to new heights”. New heights have not been touched even in the economic, trade and commerce, and science and technology fields, leave alone defense and security.
Words alone cannot forge relationships; they have to be forged through substantive gestures. One may also like to note that no Indian President has visited Vietnam since 1991 and Prime Minister Vajpayee’s visit has yet to be followed by present Prime Minister, Manmohan Singh who has been in office from May 2004 onwards.
Strategic partnerships entail a comprehensive engagement and cooperation in all fields – strategic convergences, defense and security cooperation, political convergences, economic and trade cooperation on a preferential basis and cooperation in science and technology. Details of these in relation to what is required to be done were discussed in the author’s two papers referred above.
It is not the intention to once again repeat those aspects. This paper would prefer to focus on the strategic imperatives that should determine India’s approaches to a “Vietnam-India Strategic Partnership” and cooperation in the defense and security fields, in a generic sense.
This is being examined in this paper under the following heads:
* Strategic Partnerships: India Needs to Change its Mindsets
* Vietnam-India Strategic Partnership: The Contextual Determinants Present an Opportune Moment to Declare Intent
* India Should Assist Vietnam’s Emergence as a Regional Power
* Vietnam’s Security and Defense Requirements: India’s Role
Strategic Partnerships: India Needs to Change its Mindsets
India, of late, seems to be bestowing the appellation “strategic partnership” in its diplomacy to every set of relationships on the occasion of foreign dignitaries visiting India or Indian dignitaries visiting abroad. India’s foreign policy establishment must not confuse “strategic” with “long range”. While it may be the intent to develop a long range and substantial relationship with a particular country, it can only qualify for a “strategic partnership” only when there is included an overwhelming strategic, defense and security and military component, and it is time tested and enduring.
India’s “strategic partnership” in its effective sense exists only with Russia. The US-India partnership is presently not a true strategic partnership, as it is still evolving and its enduring aspect has to be tested by time. Besides, dissonance exists in terms of strategic perceptions within South Asia itself between the two nations.
India as it rises economically and militarily and entertains hopes of being a key global player if not a global power, should realize that it would need meaningful strategic support from countries in different regions in which it wishes to exercise influence.
India, to achieve the above end- objective, would need to strategically and militarily invest in the future of its chosen friends in each region. One could even term it that India should invest strategically and militarily in the emergence of its traditional friends in such regions to gain regional pre-eminence.
Global power and influence do not come cheap, and India should recognize this. As I have been constantly reiterating in my papers, India can become an economic superpower, but it cannot become a key global power, unless it develops the political will to exercise its attributes of power and secure its national security interests, unapologetically.
“Vietnam-India Strategic Partnership” qualifies to emerge as a true strategic partnership which can be developed to its fullest strategic potential for achieving mutual national security interests. India must accordingly change and energize its mindsets and policy approaches to forge such a partnership with Vietnam.
India also needs to get out of the mindset that in its quest for substantive strategic partnerships it should not ruffle the strategic sensitivities of other powers in the region. In the case of Vietnam, the present Indian Government seems to be sensitive to China’s strategic sensitivities.
India can borrow here a leaf from China’s strategic policies. China was never sensitive and continues to be insensitive to India’s strategic sensitivities on the building of Pakistan’s nuclear weapons and nuclear capable missile arsenal. Then why should India be sensitive to what China thinks when it comes to Vietnam.
In terms of “Vietnam-India Strategic Partnership”, Vietnam too would have to change its strategic mindset of being concerned all the time of the China factor in its policy approaches to India or others.
Vietnam-India Strategic Partnership: The Contextual Determinants Present an Opportune Moment to Declare Intent
As a strategic analyst, one could dare to say that the contextual determinants presently provide an opportune moment for India and Vietnam to declare their intent to move towards forging a strategic partnership. Diplomats can work out the soft words to paraphrase this declaration of intent, and this should be declared without any apologetic overtones.
The contextual determinants that India needs to factor-in her approaches to this strategic partnership are as follows:
* Vietnam today lies at the strategic crossroads where her rich geopolitical and geo-strategic assets have become the strategic focus of United States, China and Japan
* Vietnam figures prominently in the strategic calculus of USA and China in their approaches to East Asian security. This author’s following papers refer: “Vietnam in China’s Strategic Calculus: An Analysis” (
*
http://www.saag.org/papers17/paper1609.html) of 11.11.2205 and “Vietnam’s Renewed Significance in United States Strategic Calculus” (
http://www.saag.org/papers18/paper1796.html) of 5.11.2006. USA, China, Japan, European Union, Australia and Singapore are intensifying their exchanges with Vietnam including trade investments
* Vietnam has recently been admitted to WTO and is fully integrated with ASEAN, APEC and EAS
* In recent times, the Chinese President and US President have paid visits to Vietnam
* Vietnam’s sustained economic growth rates are the second highest in Asia
* Vietnam’s strategic significance stands enhanced today by virtue of its pivotal location astride the sea-lanes of East Asia with particular reference to South China Sea.
All of the above and many more factors suggest that Vietnam is destined to play a major role in South East Asia and the South China Sea region.
Keeping in mind that the United States, Japan, Singapore and Australia have a strategic stake in Vietnam and that with all these nations, India has a strategic congruence in South East Asia and East Asia, the declaration of intent by India to work towards a strategic partnership should not create any misgivings. They would all welcome such a possibility contributing towards the national strengths of Vietnam.
China expectedly will frown on a “Vietnam-India Strategic Partnership”. But then China would have to be reminded of its assertions that it views China-India and China-Pakistan relations as two different sets of relationships. India would have to tell China that it views India- China and India-Vietnam relations also as two different sets of relationships and that it is not strategically aimed at China the way it has aimed Pakistan at India.
India Should Assist Vietnam’s Emergence as a Regional Power
Before too many hackles are raised, it must be clarified that emergence of a regional power does not necessarily imply the emergence of a “regional hegemon”. Further regional powers can be benign and constructive regional powers like India, with no record of aggressive intents. And then, a regional power or a pre-eminent power in a region inhibits unrestrained intrusive presence or interference by external powers.
It is with this perspective, the proposition is being offered that Vietnam should be assisted by India to emerge as the regional power in South East Asia. It is already so in the Indo-China region. Vietnam as a regional power would not be hostile to India or Indian national security interests in the region.
India’s “Look East” policy originated by PM Narasimha Rao was a visionary policy and the credit goes exclusively to him. India consequently today stands economically and politically integrated with ASEAN/South East Asia and with EAS.
The ASEAN region today is no longer plagued by Cold War divisions and concerns of inspired propaganda of Vietnam aggressiveness. ASEAN today is more concerned over China’s rise in East Asia. India’s economic and political integration in regional groupings of ASEAN was prompted to offset China’s unipolar dominance in the region.
Following economic and political integration in the region, India should not fight shy in contributing to the security of the region through the mechanism of a “Vietnam-India Strategic Partnership”. Vietnam lies at the Eastern fringe of South East Asia, with a strategic significances more towards the South China Sea. ASEAN nations therefore should have no concerns with such a proposition.
India is politically well placed to assist Vietnam’s emergence as a regional power than the United States or Japan. The major reason being that such assistance is not aimed at creating a military alliance. Further, that unlike USA and Japan, India is not tied down by other military alliances in the region.
Before moving to the next related aspect the author would like to highlight the stress laid by India’s Foreign Minister Pranab Mukherji and Defense Minister Antony at the 9th Asian Security Conference in New Delhi recently. In relation to South East Asia, they stressed (1) Convergences in security perspectives. (2) Commitment to peace and stability in the region. (3) Security of sea-lanes. (4) India’s assistance in capacity building of the regional Armed Forces to deal with maritime threats. (5) Stable regional environment conducive for economic and social growth.
Keeping the above assertions of the Indian Foreign Minister and the Defense Minister, India would be well advised to begin her capacity building commitment with the Vietnamese Armed Forces, as Vietnam’s pivotal location makes her eminently qualified for the security roles envisaged by India above.
Vietnam’s Security & Defense Requirements: India’s Role
Vietnam’s “strategic culture” has been viewed by one author, as being determined by the necessity of maintaining good relations with China while at the same time creating military deterrence so as to raise the cost of any aggression against it. India can play a vital role in the capacity building of Vietnam’s military deterrence capabilities.
Vietnam’s Armed Forces till the mid-1990s were hampered in their military up-gradation and modernization by low budgetary allocations and restricted sources of supply. Thereafter, Vietnam embarked on a process of selective motorization of its Armed Forces, but still a lot has to be done.
Vietnam’s future threat perceptions have to focus on maritime and aerial warfare threats. Its ground forces are large enough to deter aggression, though they need modernization and advanced equipment.
Details of India’s commitments to Vietnam in the defense and security field stood enumerated in the 15 point Defense Assistance Agreement committed by Defense Minister George Fernandes in 2000. Details stand covered in this author’s earlier papers. Impetus needs to be added to its materialization.
Countries that can assist in substantial up-gradation and modernization of Vietnam’s Armed Forces are the United States, Japan and India. The problem with US military assistance is long lead times and delays caused by US Congressional approvals and interference, Japan is prohibited by its Constitution to export military hardware. That leaves India as the only nation which can fulfill this role and it synchronizes with its national security interests.
India is singularly well placed to cater for Vietnam’s defense and security needs by virtue of a certain commonality of Russian origin weapon systems and India’s indigenous defense industry including production of such equipment.
Since India has stressed heavily through its two senior ministers on South East Asia maritime security, sea lanes security and capacity building, India would be well advised to offer substantive assistance to the Vietnamese Navy to build up its capacity (1) To counter maritime threats in the South China Sea, Gulf of Tonkin and the Gulf of Thailand (2) Maritime surveillance by the Navy over such extended areas both by sea and air (3) Surveillance of its EEZ and (4) Protection of its off shore oil platforms. These tasks are akin to the Indian Navy operational roles and India can therefore offer valuable help to the Vietnamese Navy in terms of force modernization, communication and surveillance systems integration, training and operational expertise.
India’s help to the Vietnamese Air Force perforce get restricted to refurbishment of Russian origin combat aircraft, weapon systems and honing aerial combat skills. However, India can provide at “friendship prices” its Advanced Light Helicopters and other aviation equipment for all three Services of the Vietnamese Armed Forces.
Details can be worked out by respective Armed Forces Headquarters of both the countries through a process of fast track consultations.
The major defense and security requirement of Vietnam would be to build up its conventional military deterrence. India can contribute vitally by providing Prithvi Ballistic Missiles and Brahmos Cruise Missiles. These are produced indigenously in India and therefore do not need approval from any other nation. Nothing more would highlight India’s commitment to contribute to the security of Vietnam than these conventional missiles.
It is high time that India recognizes the tremendous value of “Military Diplomacy” which includes military aid and weapons supplies as an added instrument of India’s foreign policy. In cases where India has to build up strategic partnerships, such provision of military assistance should not be on a commercial sales basis, but at ‘friendship prices’ like the Chinese do.
Concluding Observations
On the threshold of the 21st Century the global strategic, political and economic center of gravity stands shifted from the Euro-Atlantic region to East Asia.
India today stands fully integrated politically and economically with East Asia. However it has yet to demonstrate its political will to integrate itself with the security requirements and concerns of East Asia and everybody knows what they are.
India’s integration with East Asian security architecture would require forging of strategic partnerships within the region. The existing pattern of strategic partnerships in East Asia is bi-lateral in nature.
In this sort of pattern, Vietnam offers the best strategic bet in terms of a strategic partnership with India. It would be a bilateral relationship and not a military alliance.
Former Prime Minister Vajpayee had this in mind when during his visit to Vietnam in 2001 he asserted.
“History has willed that we become strategic partners in the New Century to promise peace, stability, security and sustainable cooperation among countries in Asia.”
(The author is an International Relations and Strategic Affairs analyst. He is the Consultant, Strategic Affairs with South Asia Analysis Group. Email:
[email protected])
India and Vietnam