South Asia Analysis Group  
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Paper no.162

  

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INDO-MYANMAR RELATIONS  - a volte face 

 by  C.S.Kuppuswamy

 
The recent visit of the Vice Chairman of Myanmar’s ruling State Peace and Development Council, Gen Maung Aye to India from Nov 14, 2000 as head of a high level delegation had evoked a mixture of responses.  The Government of India had virtually rolled out a red carpet and the General had met the President, Vice President and the PM.  He had visited Bangalore, Agra. Udaipur and Bodh Gaya.  In this connection a columnist in “Asian Age” had posed the following questions: Why this disturbing shift in even the basic principles on which our foreign policy is based?  Are the long term interests of India protected?  Is the sovereignty and integrity of India being protected ?  Will this shift strengthen the standing of India in the world? 

 India shares a 1670 km long land border and a maritime border of 200 km with Myanmar.  The Indo-Myanmar border has generally remained peaceful but for frequent incursions by insurgent forces and till date there had been no significant border conflict as such.  As early as in 1944 Sardar KM Paniker had focused attention on the strategic significance of Burma (Myanmar) and remarked “the  defence of Burma is the defence of India and it is India’s primary concern no less than Burma’s to see that its frontiers remain inviolate.”  India played a significant role in bolstering Myanmar politically and militarily in the early years of its independence.  Nehru’s efforts succeeded in persuading commonwealth countries to provide military and economic aid to Myanmar.  India’s military and economic assistance even at that stage had the dual purpose in creating a buffer between India and China as well as to prevent deterioration of the insurgent situation on the Indo-Myanmar Border.

 Since the beginning of the regime of Gen Ne Win in 1962, Myanmar (under pressure from China) started distancing itself from the Soviets and the pro Soviet elements.  Myanmar’s relations with India were strained because of India’s position on Cambodia and Afghanistan.  The Indian Consulate in Mandalay was closed and the former PM U Nu who was in exile was allowed to return to Myanmar.  Myanmar refused to become a member of the Commonwealth.  Myanmar got out of the Non-Aligned Movement in 1979.  Pakistan and China had disregarded international opinion and forged close military ties with Myanmar since 1988(when the army took over), in their overall strategy of weakening India.  Chinese ambitions in the Indian ocean also became evident by its help to Myanmar in modernising its naval bases at Hanggyi, the Cocos islands, Akyab and Mergui.  The Myanmar-Pak-China nexus has perhaps made the Indian policy planners to rethink on their approach towards the military regime.

 As China had turned Myanmar practically into a client state through its political diplomacy and economic and military assistance, India also needs to win over Myanmar if not wean it from the Chinese influence.  There is a distinct need for India to improve relations with Myanmar through identification of commonality and community of interests between the two countries.   For more than four years (1988-92), India’s policy was more inclined towards supporting the democratic process against the Junta.  India realised rather late that its policy has only pushed the Myanmar  regime further towards China.  India decided on a more pragmatic two-track approach.   Accordingly it improved  relations with the SLORC (The military regime then known as the State Law and Order Restoration Council) and also kept its communication channels open with Suu Kyi and her supporters. 

 Aung San Suu Kyi with her Indian connections has also been a significant factor in the relations between the two countries.  She is an alumnus of Lady Shri Ram College New Delhi and her mother had served as Myanmar’s ambassador into India in the early 1960s.  She stayed at the Institute of Advance Study at Shimla to study the subject of “ Intellectual life under colonialism in India and Burma” and the study was published as a book in India.  She was given the Jawaharlal Nehru award for her struggle to bring peace and democracy in Myanmar.

 India is a dialogue partner of ASEAN ( Association of South East Asian Nations) since December 1995.  India and Myanmar became members of ARF (ASEAN Regional Forum) in July 1996.  Myanmar has since (July 1997) become a full fledged member of ASEAN.  ASEAN was perhaps of the opinion that isolating the Yangon regime would only push it further into China’s embrace and persevered with its “constructive engagement”.  India is also perhaps following the example of ASEAN in its efforts to improve the relations.  Consequent to the visit of, Gen Maung Aye to India in Jan 2000 and his offer of military co-operation to tackle cross border insurgencies, India is believed to have started supplying   non-lethal military aid to Myanmar including boots and combat gear for soldiers. India had also leased helicopters.  During the visit of an Indian trade delegation to Myanmar,  projects on copper exploration, construction of a natural gas pipeline and a hydro-electric project on Chindwin river have been discussed and planned.  The building up of the Imphal-Tamu-Kalemayo road has also been taken up by the Indian Govt.  The two countries have supported each other in the international fora. Yangon has appreciated India’s positive approach on the issues related to Myanmar at ILO.

 During the recent visit of Gen Maung Aye from Nov 14,2000, business seemed to be the main item on his agenda.  He said that cooperation in hydro-carbon and hydel projects, information technology, tourism and infrastructure development are some of the areas where the two countries can join hands.  The two countries will sign a credit line of $15 million for purchase of Indian goods.  India is Myanmar’s largest export market.  Exports to India in 1999-2000 were to the tune of 141.14 million while imports from India were worth 75.36 million.  The General had also assured full cooperation in fighting some of the insurgent groups in the north eastern states. Myanmar Foreign minister Win Aung at the end of the week long visit, allayed Indian fears by saying that “any island in my country, or Myanmar’s soil will not be used as a military base by any power against in India”.

 The reversal of the Indian policy in improving relations with the military regime in Myanmar has been evidenced since 1992-93, after a virtual stand off for a few years when the democratic movement in that country was being openly supported.  Speaking about the current visit of Gen. Maung Aye, Home minister LK Advani defended, India playing host to a military leader by saying that the pros and cons were weighed by the government “But in international relations, we have to take into account our national interests”.  A senior foreign ministry official said India’s relations with the two countries (Pakistan and Myanmar) cannot be compared and  that Myanmar is a “different case” as it has cultural and historical ties with India. Another justification given was that while India supports democratic governments, it does not interfere in the internal matters of other countries.

 The following arguments go against the reversal of the Indian policy in dealing with the military regime.

*  The fact is that it is a paradigm shift in the basic principles on which the Indian foreign policy is based.

*  If and when a popular government comes to power in Myanmar, India will find itself in an embarrassing and unenviable situation as it happened during the Gulf War with a pro-Saddam stance in the initial stage.

*  The Myanmarese political exiles in India (approx 15000) are worried of being pushed back into Myanmar.  The exiles and students are unhappy over this revised policy and worried about their future.

*  If India does not want to deal with the military regime in Pakistan, why is it doing so with Myanmar?

The following arguments support and vindicate the present policy.

*  Perhaps the junta is there to stay and dealing with them at some time becomes inevitable.

                  *  The Myanmar-Pakistan-China nexus is causing concern 
                  to India.   

*  The insurgent outfits in the North East are mushrooming and some of the existing ones are being supported by the Pakistan ISI. With some of the insurgent units being of Myanmarese origin or having connections with Myanmar insurgents the support of the Myanmar regime in fighting these insurgent groups is of paramount importance. 

*  The Indian insurgents find safe haven in Myanmar territory and joint operations become necessary  to flush them out.

* The Myanmarese rebels ensure that drugs are brought under their protection upto Tamu on the Indo-Myanmar border.  The Indian insurgent groups take over from  these locations and thereafter push the drugs inland.  The arms from Thailand are also being smuggled to the insurgent units through the Indo-Myanmar border.

* Myanmar has a large economic potential which is already being exploited by the other ASEAN nations.  India can reap the benefits of this developing economy by improving the relations with Myanmar.

 Some analysts point to Myanmar’s geo strategic importance for India , the need for Myanmar’s cooperation to counter narcotics, insurgency and security threats to India’s north eastern states. These considerations have remained for years and are nothing new.  What has changed, is the  policy of the government from one of idealism of Nehru’s days to a policy that gives priority to India’s national and security interests.  It is hoped that the changed policy of the government is not a reaction to Chinese intrusive policy in Myanmar but on one’s own  considerations.  

There are many areas of cooperation of non-lethal nature like health and education, which even Suu Kyi may not object.  Myanmar has one of the highest incidence of HIV cases in Asia.  Besides lacking expertise, the country is short of medicines and drugs.  Perhaps India can help.

  Appendix to Paper no. 162-  Some landmarks in Indo-Myanmar relations. 

-  Jawahar Lal Nehru visited Yangon during 1945-46 and was a strong advocate of Myanmar’s independence.

-  In July 1948, Government of India issued a notification permitting tribals on both the sides of Indo-Myanmar border to cross the border upto 40 km on either side without need of passports.  

-  India and Myanmar signed a trade agreement on 27 Mar 1970.

-  Rajiv Gandhi, accompanied by foreign secretary KPS Menon  made a state visit to Burma in 1987 and had talks with Gen. Ne Win, the Prime minister and his senior cabinet ministers.

-  Vice Foreign Minister, U Baswe visited India in Aug 1992 and had discussions with the Indian Foreign Office on matters concerning security and joint action to counter insurgency and to increase economic and technological cooperation.

-  Indian Foreign Secretary Dixit visited Myanmar in March 1993.  A Joint Working Group was constituted for examining pensions, compensations and other consular issues.  A border trade agreement was also negotiated during this visit.

-  Surveyor-General of India visited Yangon in Oct 1993.

-  A memorandum of understanding (MOU) on cooperation between civilian border authorities of India and Myanmar for maintaining peace and tranquility was signed in Jan 1994.

-  Myanmar Dy. Foreign minister visited India in Jan 1994. 

-  Indian Chief of Army Staff paid a goodwill visit to Myanmar from May 9-13 1994.

-  Commerce Secretary visited Myanmar in June 1994.

-  The Myanmar Surveyor General paid a return visit in July 1994.

-  The annual joint survey work along the Indo-Myanmar border commenced from December 1994. 

-  Border trade was inaugurated jointly by the then Minister of State for Commerce Shri. P.Chidambaram and the Myanmar minister for Trade Lt. Gen Tun Kyi at Moreh in Manipur and Tamu on the Myanmar side on 12 Apr 1995.

-  Indian Chief of  Air Staff visited Yangon in April-May 1996.

-  Indian Chief of Army Staff Gen VP Malik led a tri service delegation to Mandalay on Jan 5,2000.  Two ministerial delegations led by Industry Minister Maran and Power minister Kumarmanglam visited Myanmar around the same time.

-  In Jan 2000 Gen Maung Aye paid a highly publicised visit to India.          

-  In May 2000 a Business delegation headed by GL Goenka visits Myanmar to promote trade and investment in that country.  Copper exploration near the Indian border and a natural gas pipeline from Burma to India were believed to have been discussed.  Talks on a 1000 megawatt hydroelectric project on Chindwin river have reached an advanced stage.

-  Home Secy. Pande led an Indian delegation to a four day Indo-Myanmar meet in Aug 2000 for effective border management of the two coutries.

-  A high powered delegation under the leadership of Gen Maung Aye, Vice Chairman of the State Peace and Development council visited India from 14-20 Nov 2000.  The delegation included the Dy. Pm Lt.Gen Tin Hla and ministers for foreign affairs, finance, commerce,  power, science and technology, and industry


24.11.2000