Nations must determine when to confront Chinese aggression; for India, Bhutan is a priority.
By Shyam Saran*
India is in a prolonged standoff with Chinese forces on the Doklam plateau. China may have been caught off guard after Indian armed forces confronted a Chinese road-building team in the Bhutanese territory.
Peaceful resolution requires awareness of the context for the unfolding events. China has engaged in incremental nibbling advances in this area with Bhutanese protests followed by solemn commitments not to disturb the status quo. The intrusions continued. This time, the Chinese signaled intention to establish a permanent presence, expecting the Bhutanese to acquiesce while underestimating India’s response.
Managing the China challenge requires understanding the history of Chinese civilization and the world view of its people formed over 5,000 years of tumultuous history. Caution is required before mechanistically applying historical patterns to the present as these are overlaid with concepts borrowed from other traditions and behavior patterns arising from deep transformations within China and the world at large.
The ideas of US naval officer Alfred Thayer Mahan and British geographer Halford Mackinder are just as discernible in Chinese strategic thinking today as concepts derived from the writings of ancient strategist Sun Zi. The One Belt One Road project initiated by China is Mackinder and Mahan in equal measure: The Belt, designed to secure Eurasia, dominance over which would grant global hegemony, was suggested by Mackinder in 1904; the Road which straddles the oceans, enabling maritime ascendancy, is indispensable in pursuing hegemony, according to Mahan in the late 19th century. China’s pursuit of predominance at the top of regional and global order, with the guarantee of order, has an unmistakable American flavor. It also echoes Confucius, the Chinese sage who argued that harmony and hierarchy are intertwined: All is well as long as each person knows his place in a predesignated order.
China uses templates of the past, as instruments of legitimization, to construct a modern narrative of power.
One key element of the narrative is that China’s role as Asia’s dominant power to which other countries must defer restores a position the nation occupied throughout most of history. The period stretching from the mid-18th century to China’s liberation in 1949, when the county was reduced to semi-colonial status, subjected to invasions by imperialist powers and Japan, is characterized as an aberration. The tributary system is presented as artful statecraft evolved by China to manage interstate relationships in an asymmetrical world. Rarely acknowledged is that China was a frequent tributary to keep marauding tribes at bay. The Tang emperor paid tribute to the Tibetans as well as to the fierce Xiongnu tribes to keep peace.
History shows a few periods when its periphery was occupied by relatively weaker states. China itself was occupied and ruled by non-Han invaders, including the Mongols from the 12th to 15th centuries and the Manchus from the 15th to 20th centuries. Far from considering these empires as oppressive, modern Chinese political discourse seeks to project itself as a successor state entitled to territorial acquisitions of those empires, including vast non-Han areas such as Xinjiang and Tibet. As China scholar Mark Elliot notes, there is “a bright line drawn from empire to republic.”
Thus, an imagined history is put forward to legitimize China’s claim to Asian hegemony, and remarkably, much of this contrived history is increasingly considered as self-evident in western and even Indian discourse. Little in history supports the proposition that China was the center of the Asian universe commanding deference among less civilized states around its periphery. China’s contemporary rise is remarkable, but does not entitle the nation to claim a fictitious centrality bestowed upon it by history.
The One Belt One Road initiative also seeks to promote the notion that China through most of its history was the hub for trade and transportation routes radiating across Central Asia to Europe and across the seas to Southeast Asia, maritime Europe and even the eastern coast of Africa. China was among many countries that participated in a network of caravan and shipping routes crisscrossing the ancient landscape before the advent of European imperialism. Other great trading nations include the ancient Greeks and Persians and later the Arabs. Much of the Silk Road trade was in the hands of the Sogdians who inhabited the oasis towns leading from India in the east and Persia in the west into western China.
Thus, recasting a complex history to reflect a Chinese centrality that never existed is part of China’s current narrative of power.
China, as a great trading nation, owes its current prosperity to being part of an interconnected global market with extended value chains. This has little to do with its economic history as a mostly self-contained and insular economy. External trade contributed little to its prosperity.
Yet large sections of Asian and Western opinion already concede to China the role of a predominant power, assuming that it may be best to acquiesce to inevitability. The Chinese are delighted to be benchmarked to the United States with the corollary, as argued by Harvard University’s Graham Allison, that the latter must accommodate China to avoid inevitable conflict between established and rising power. However in other metrics of power, with the exception of GDP, China lags behind the United States, which still leads in military capabilities and scientific and technological advancements.
In reality, neither Asia nor the world is China-centric. China may continue to expand its capabilities and may even become the most powerful country in the world. But the emerging world is likely to be home to a cluster of major powers, old and new. The Chinese economy is slowing, similar to other major economies. It has an aging population, an ecologically ravaged landscape and mounting debt that is 250 percent of GDP. China also remains a brittle and opaque polity. Its historical insularity is at odds with the cosmopolitanism that an interconnected world demands of any aspiring global power.
Any emerging and potentially threatening power will confront resistance. When Bismarck created a powerful German state at the heart of Europe in the late 19th century, he recognized the anxieties among European states and anticipated attempts to constrain the expanding influence. China, like other nations before, cultivates an aura of overwhelming power and invincibility to prevent resistance. Despite this, coalitions are forming in the region with significant increases in military expenditures and security capabilities by Asia-Pacific countries.
Doklam should be seen from this perspective. The enhanced Chinese activity is directed towards weakening India’s close and privileged relationship with Bhutan, opening the door to China’s entry and settlement of the Sino-Bhutan border, advancing Chinese security interests vis-à-vis India.
India must carefully select a few key issues where it must confront China, avoiding annoyances not vital to national security. Doklam is a significant security challenge.
India must form its own narrative for shaping the emerging world order. The world’s largest democracy must resist attempts by any power to establish dominance over Asia and the world. This may require closer, more structured coalitions with other powers that share India’s preference. In fact, current and emerging distribution of power in Asia and across the globe support a multipolar architecture reflecting diffusion and diversity of power relations in an interconnected world.
India possesses the civilizational attributes for contributing to a new international order attuned to contemporary realities. Its culture is innately cosmopolitan. India embraces vast diversity and inherent plurality, yet has a sense of being part of a common humanity. India should leverage these assets in shaping a new world order that is humanity-centric. Narrow and mindless eruptions of nationalism, communalism and sectarianism detract from India’s credibility in this role. India should advance its interests, with constant awareness of responsibilities in a larger interdependent world.
*Shyam Saran has served as India’s foreign secretary and as chairman of its National Security Advisory Board. He writes and speaks regularly on foreign policy and security issues. This article is adapted from the inaugural lecture delivered by the author at the Institute of Chinese Studies and the India International Centre, New Delhi.