India’s Foreign Policy, National Security & Development
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By: (Late) Amb. J. C. Sharma, Former Secretary (Policy Planning, Consular & Diaspora) MEA
Venue: Ranchi
Date: Dec 03, 2013
Introduction
The Diasporic communities have emerged as one of the important element of foreign policy. They play a particularly important role in soft power diplomacy. The Chinese Diaspora has been a major factor in transformation of China into a modern industrial society.
They are the single largest source of foreign investment in China. Jewish Diaspora has exercised powerful influence in shaping US and West European policies towards Israel. During the colonial period, the Diaspora had actively helped the independence movement.
The Congress party had also taken keen interest in the welfare of Indian communities abroad.
Remittances by the overseas communities have become important source of foreign exchange for countries like India, Mexico and Philippines etc. India has also accorded high priority to the engagement of its Diaspora since the nineties. Remittances have also
played an important role in the foreign exchange management. With US$ 52 billion in 2008, India is the largest recipient of remittances in the world .
It would be useful to have an overview of the Indian migration, in order to study the Government of India’s policies towards Diaspora. The overseas Indian communities are a microcosm of India. They are spread across all oceans and continents. Population of
Indian Diaspora is estimated to be over 20 million. There are three categories of overseas Indians.
- NRI’s: - Indian citizens staying abroad for indefinite period for whatever purpose. Majority in Gulf.
- PIO’s: - Overseas Indian who have become citizen of the countries of their settlement.
- SPIO: - Stateless Person of Indian Origin. They have no documents to substantiate their Indian Origin. Majority Myanmar and Sri Lanka.
History of Migration
Indians have migrated since the dawn of history. They initially migrated to countries of South East Asia, Central Asia and Africa and to some parts of Europe. This was driven by both spirit of adventure and trade in precious metals such as gold, silver and
spices etc.
Indian culture and civilization have left its imprint on South East Asia and Central Asia.
The large scale migration was, however, a byproduct of colonialism. The abolition of slavery in the British, French and Dutch colonies in 1834, 1846 and 1873 respectively created extreme shortages of labour in the plantation economies of their colonies. A large
number of Indians were recruited as indentured labour and transported to various parts of the Empire.
The majority of the migrants under the indenture system were induced or encouraged to leave India by painting a rosy picture of the life ahead. The contracts were not only unethical but also illegal because most Indians were innocent of the provisions. In many
cases they were not even correctly told the names of the countries to which they were transported. A number of workers did not survive the arduous voyage. Mortality rate was high because of the inhuman conditions of their camps and the cruelty of their employers.
Indentured labour was, therefore, nothing but a euphemism for slavery. The extraordinary achievements of Indian workers in the face of these heavy odd is best described by Vishwamitra Ganga Aashutosh, a Mauritian poet
No Gold did they find
Underneath any stone they
Touched and turned
Yet
Every stone they touched
Into solid gold they turned
The recruitment of labour under indenture system by the British resulted in emergence of significant presence of Indians in Mauritius, Guyana, Trinidad & Tobago, South Africa and Fiji. They also recruited contract labour for their colonies in Myanmar, Malaysia
and Sri Lanka. The French recruited Indian labour for their colonies in Reunion Islands, Guadeloupe and Martinique and the Dutch recruited the workers for Surinam. Some Indians were also taken by the Portuguese to their colonies in Angola and Mozambique. The
British also recruited labour for its colonies in East Africa particularly for construction of East African Railways.
These workers were followed by Indian traders and professionals under the free passage system. The colonial connection also led to emergence of small Indian communities in UK, North America and Australia. 1946 Act of the US Congress made it possible for a small
number of Indians to get US citizenship.
The shortage of labour after the Second World War facilitated the migration of Indians to UK. The US also emerged as an important destination for higher education. The Immigration Act of 1965 in US and the regulations introduced in Canada in 1967 paved the
way for the settlement of a large number of professionals in both these countries. Assertive nationalism in the wake of independence in East Africa led to migration to UK, US, Canada and Australia.
The oil boom of the seventies led to large scale Indian migration to the Gulf countries. The remittances from the workers in Gulf became an important factor in managing the foreign exchange crisis. Presently there are about 4 million Indians in the Gulf countries.
Rapid economic growth and expansion of technical education particularly in IT has given a fillip to further migration to the developed countries. U.S.A., Canada, U.K. and Australia have been recipients of large number of Indian students. Many of whom settle
down after completing their education.
It would be seen from the brief overview of the history of migration of Indians that it is one of the most diverse Diaspora with significant presence in every continent. There are 11 countries with more than half a million Indians. 23 countries have more than
100 thousand Indians and 48 countries have presence of 10000 Indians.
The presence of overseas Indians in significant numbers is an important factor in our relationship with the countries of their settlement. It has implications for our foreign policy, national security and economic development.
Foreign Policy Implications
Because of the presence of large overseas communities, every domestic political development acquires an external dimension. Deep interest taken by the Congress party in the welfare of overseas Indians forced the colonial administration to take measures like
appointment of a Committee to go into the condition of Indian indenture labour and setting up of Protectorate General of Emigrants. The government also had to maintain close liaison with colonial administrations in the countries with indentured labour and
Canada. During the colonial period, the Independence movement in India deeply influenced the overseas Indian communities. Gadar movement for liberation of India started in California, Komagata Maru incident in Canada had major political implications. Azad
Hind Fauj received huge support from Indian communities in South East Asia. Drawing inspiration from India’s independence movement, the Indian communities were in the forefront of freedom movements in Caribbean and Fiji. Chhedi Jagan led the freedom movement
in Guyana. Adi Patel and Koya provided the leadership in Fiji. Indians actively supported Mau Mau and other freedom movements in East Africa. Active role of the Indians in political awakening in colonies influenced the policy of U.K. and its allies particularly,
U.S.A. during the Cold War period. It led to the denial of political power to the leaders of Indian origin. No doubt, the attitude of these countries was also influenced by India’s foreign policy.
Jawaharlal Nehru had taken keen personal interest in the welfare of overseas Indian communities. On March 18, 1946, addressing a predominantly Indian gathering in Singapore, Jawaharlal Nehru said :
"India cannot forget her sons and daughters overseas. Although India cannot defend her children overseas today, the time is soon coming when her arm will be long enough to protect them.”
After independence, Jawaharlal Nehru gave primacy to the larger foreign policy goals. He abolished the Ministry for Overseas Indian Affairs in 1947. Anti colonialism and Non Alignment became major pillars of India’s foreign policy. He advised overseas Indian
communities to fully identify with the country of their residence. Responding to a question by Seth Govind Das in Lok Sabha, he said ‘Our interest in them becomes cultural and humanitarian and not political’ .
The policy of Burmanisation followed by General Ne Win led to an exodus of Indians from the country. Nehru’s response disappointed the Indians who had to leave Burma. He could, however, hardly find fault with Ne Win since India itself was following a policy
of socialism and nationalization. His successor Lal Bahadur Shastri had a brief tenure. He entered into an agreement with Srimavo Bandaranaike to resolve the question of Indian Tamils in Sri Lanka. Prime Minister Indira Gandhi also faced a difficult situation
caused by exodus of Indians from East Africa particularly Uganda. She provided temporary shelter to those Indians who were willing to come to India. After several negotiations, Uganda also gave a meager compensation. However, the expelled Indians felt that
India did not do enough for them in their hour of need. The treatment meted out to the Indians became an important factor in our relationship with all these countries. To some extent, the problem still lingers on. Myanmar still has the largest number of Stateless
Indians. Some residual problem also remains in Sri Lanka.
Political Engagement
The strong reaction to the declaration of Emergency in 1975 by the Diaspora in US and UK made Government of India develop a policy of engagement towards the communities in the developed world. It led to the efforts by both Congress and the then Jan Sangh to
mobilize the overseas Indian communities in their favour. Indian missions were asked to develop close rapport with the communities. The need to counteract the active support and funding to the Khalistan movement by certain sections of the Sikh community, gave
a further impetus to this process of engagement. The Global Organization of People of Indian Origin was formed in 1989.
Because of their extraordinary achievements, the first generation migrants acquired the confidence to take part in the activities of the mainstream society in US, Canada & UK. The affluent Indians started making contribution to the election funds. In US, several
organizations were formed to actively lobby for promoting India’s interests and counteract anti India forces. The community played a major role in defeating Burton amendment in the US Congress. It mobilized major support in the aftermath of nuclear tests in
19998 and Kargil War in 1999. Its lobbying efforts were extremely useful in signing of Indo-US Civil Nuclear Co-operation agreement. P.M. Manmohan Singh recognized the contribution of Indo-Americans during his speech at Seventh Pravasi Bhartiya Divas on 8th
January 2008 .
‘I wish to record our special gratitude to the Indian community in the United States of America for the efforts made by them in mobilizing support of the political leadership in that country for Indo-US cooperation in civilian
nuclear energy.’
Political activism has also led to keen interest in India’s internal political developments, including electoral politics. Overseas Indians from Punjab, Gujarat, Kerala and Andhra take keen interest in the elections in their States. Substantial funding also
comes from the Diaspora. During the last assembly elections in Punjab, both Akalis and Congress had made use of the Canadian media for their election campaign.
Various religious and ethnic groups lobby for causes of their respective communities. Issues like Ayodhya, Gujarat and Kandhamal riots have led to divisions in the community. These have been exploited by the intelligence agencies of the countries inimical to
India’s interests. Several parliamentarians from UK, US and Canadian take more than usual interest in various internal political issues in India because of the presence of large Indian communities in their constituencies. Soon after the Gujarat riots in 2002,
British High Commission deputed its diplomats to visit Gujarat. The primary reason for this was the presence of People of Indian Origin in the constituency of then British Foreign Secretary Jack Straw. During Khalistan movement, the Canadian MPs had also visited
Punjab. They attended many functions organized by separatists in various Gurudwaras of Canada. Campaign against grant of visa to Narendra Modi was also organized by sections of Indian community and they actively solicited support of the Congressmen, Senators,
Media and the human rights groups. Several groups in India also make use of the Diaspora for promoting their interests.
The presence of large Indian communities in Gulf is a major factor in our policy towards these countries. The welfare of Indians in Iraq and Kuwait influenced our policy during the 1st Gulf War in 1991.
Diaspora is the sole reason for our maintaining Missions in several countries. If there were no Indian communities we would not have Missions and posts in places like Jamaica, Surinam, Guyana, Trinidad and Tobago, Fiji, Reunion Islands etc. Treatment of Indian
communities can also have an impact on our bilateral relations with a number of countries. 1987 coup by Col. Rabuka in Fiji led to a situation that our Mission had to be closed down for some time. It not only impacted our relations with Fiji but also became
an irritant in our relations with Australia for some time. Hindraf movement in Malaysia caused a major reaction in India. Chief Minister Karunanidhi issued a sharp statement drawing equally sharp rejoinder from a Malaysian Minister. The coalition politics
and the rise of regional parties is going to make the situation even more difficult in future. The foreign policy establishment would have to constantly watch the situation and ensure such developments do not lead to deterioration in relationships. Offensive
remarks by a Radio Jockey in South Africa had also drawn some response in India. Fortunately the government of South Africa had dealt with the issue with firmness and maturity. The Indian Mission in South Africa would have to constantly monitor the relations
between Africans and Indian community.
The treatment of Indians in Gulf also poses some challenges. Consular issues are the major concern of our Missions in the Gulf. So far Indian public opinion has not been very vocal in its criticism of the Gulf States in this regard. However, this remains a
potential area of concern.
Uneasy relationship between Person of Indian Origin (PIO) and Afro-Caribbean’s has not had a major impact on the relationship so far. The Indian Mission’s in these countries have to do a considerable amount of balancing act.
Increasing number of Indian students and IT workers is also posing new challenges as we have seen in Australia. It is obvious that the number of Indian professionals in foreign countries is going to increase in the years to come; hence, the foreign policy establishment
would have to be geared to meet the expectations of this growing community.
It is, therefore, obvious that the presence of Diaspora has both positive and negative implications for our foreign policy. They facilitate interaction with the elected representatives, opinion makers, media and NGOs. Some influential committee members have
access right up to White House/10-Downing Street & the Canadian PM. India caucus is the largest caucus on the Capitol primarily because of the efforts of the Indian community. Similarly, with greater effort and coordination with the community it would also
be possible to get similar access in Australia, New Zealand, Holland, Portugal etc. PIO are also Members of Parliament in many countries and can be helpful in facilitating interaction with various political parties and the government.
The PIOs are extremely helpful in interaction with the media. A large number of PIOs wrote letters to editors defending India’s Nuclear Tests and during Kargil conflict. Academics of Indian origin are also a major asset for our diplomatic efforts. They are
particularly helpful in organizing speaking engagements for our diplomats and visiting dignitaries in prestigious institutions. They help promote India’s studies. Prestigious seminars on South Asia now have large presence of academics from Indian Diaspora.
The communities also are a major asset in India’s cultural diplomacy. Overwhelming majority of volunteer’s for Festival of India in US and UK were from the Indian community. Hundreds of dance, music and yoga schools are run by the members of the community.
Security Implications
The Diaspora has major implications for our national security. A Rand Corporation study has analyzed the impact of various Diasporas on security of West European countries. The Khalistan movement received major political, financial and material support from
large sections of Sikh communities abroad. Kanishka crash was masterminded by Canadian Sikhs. They actively mobilized support with elected representatives, media, human rights & other civil society groups. Pakistan made very effective use of sections of Punjabi
Diaspora for threatening India’s security by destabilizing Punjab. They also facilitated interaction between Kashmiri and Khalistani separatists. A number of Gurudwara’s all over the world became centers of Pro-Khalistani activities.
We are also aware of the extent of involvement of large sections of Tamil Diaspora in mobilizing every kind of support for LTTE. They were the major source for funding and facilitated supply of arms and equipment. It would be no exaggeration to say that LTTE
could not have lasted this long without strong support from sections of Tamil Diaspora.
Kashmiri Diaspora has been extremely active in organizing support for militancy. We are all aware of the case of activities of Ghulam Nabi Fai and Farooque Kathwari. Mirpuris in UK are a major source of trouble. Killing of Mhatre organized by Kashmiri militants
was the first killing of an Indian diplomat abroad.
Diaspora is a major source for funding for terrorism through hawala route. They also play a role in facilitating narco trade.
Members of the Diaspora are a major asset to intelligence agencies inimical to India. Apart from Pakistan, intelligence agencies of US, UK and Canada etc. have also made use of Indian Diaspora for their activities. Today every influential family has some relatives
abroad. These family members come and stay with their parents and relatives who have access to sensitive information pertaining to our security, foreign relations and economic policies. No doubt the Diaspora is also a major asset for the Indian intelligence
agencies. The members of Diaspora can facilitate development and transfer of useful defence technologies. I had constituted a group for this purpose.
Economic Development, Commerce & Trade
Remittance
As we have seen in the case of China, Diaspora can play a very important role in Economic Development and transformation of a nation into a modern industrial society. About 68% of total foreign investment in China during late 80s and 90s came from overseas
Chinese. Diaspora is a major source of remittances. India received over US $56 billion in 2011. The remittances contribute a little over 20% of the GDP of Kerala. Punjabi Diaspora contributed to the Green Revolution by facilitating purchase of farm equipment
The liberalization of Indian economy since 1991 has opened up opportunities for accelerating the development process and investments in India. The Diaspora can help increase bilateral trade and commercial relationship with a number of countries. The overseas
Indians can be major catalysts in development of quality infrastructure. They can facilitate the entry of venture capital funds and participate in various financial schemes like deposits in banks, shares, mutual funds etc. The finance professionals can help
in realizing the objective of making Mumbai an international financial centre. High-quality result oriented business outsourcing is yet another field of participation by the Diaspora.
Indian Diaspora is an asset as a customer. They are the link to the flourishing markets across international borders. They make personal use of daily consumables from India, enjoy Indian movies, music and buy ornamental goods like art and craft. This not only
opens up the Indian market abroad but also provides a platform for the cross country selling and trade.
Besides being customers, Indian Diaspora can be successful suppliers of their businesses and trade in India. This opens up a world of opportunity for India to have hands on to hi-grade technology, working skills, management and material. The entry of multinationals
can provide a definitive boom to Indian market. It would provide an access to various resources for industries and businesses and latest technical know-how.
The Diaspora can make a significant contribution to the growth of tourism in India.
Science & Technology and Knowledge based industries
There is a large reservoir of highly trained experts and scientists in knowledge based industries, such as, information technology, science, research and development etc. They can play an important part in developing India as an R & D centre.
Healthcare
The overseas Indians have distinguished themselves in the field of medicine and healthcare in the countries of their residence. They can play an important role in secondary and tertiary healthcare in India. The Diaspora can also help in promoting India as healthcare
destination. They can effectively contribute in the expansion and growth of pharmaceutical industry.
Education and Culture
Education and Culture are the other two areas where Diaspora can play an important role in strengthening linkages between India and countries of their residence. They can be play a major role in revamping of the education sector and establishment of world class
institutions in the country. India Business School, Hyderabad is a fine example of the role of Diaspora in developing management studies. The proposed Institute of Public Health would be yet another model of partnership with Diaspora.
Philanthropy
Indian Diaspora has been eager to donate generously for worthy development causes in India. Major Diaspora organizations and forums are actively involved in the promotion of education, health care, rural development, micro-financing etc.
Conclusion
It is obvious that the 25 million strong Indian Diaspora has an impact on India’s foreign policy. They are an important factor in the bilateral relationship with the countries where they have a significant presence. They are the most important tool for India’s
soft power diplomacy. Overseas Indians can be our unofficial ambassadors. They can play an important role in transforming India into a modern industrial State through knowledge power. Diaspora can also make useful contribution in much needed reforms in education
sector. They are a major asset in transformation in the area of healthcare and also make India a hub of medical tourism. Diaspora philanthropy has played an important role in education, healthcare and rural development. No doubt the Diaspora also has major
implications for India’s security. They are an important tool in the hands of nation’s inimical to India.
Overseas Indians also benefit immensely from the standing of India in the international arena. Prestige and strength of India has a direct impact on the position of Diaspora in the countries of their settlement. In nutshell, the destinies of India and its Diaspora
are intertwined. It is in the interest of both India and her Diaspora to develop a mutually beneficial relationship.