Understanding India-Bhutan relations
While
understanding
Bhutan's
relation
with
India,
one
has
to
keep
in
mind
that
the
nation's
relationship
with
India
did
not
evolve
after
1947
when
India
achieved
its
independence
from
the
British
rule.
Relation
during
British
rule
Bhutan had come under the British suzerainty after clashing with the colonial powers in 1865. In 1910, the British had signed the Treaty of Punakha with Bhutan and this laid the foundation of the relation between India and Bhutan in subsequent times. Through this treaty, the British got the power to regulate Bhutan's foreign relations and Bhutan was also assured of security against any possible threat from China, its northern neighbour.
Continuity of the past
After the British had left the subcontinent, the relationship between India and Bhutan saw a continuity of this pattern. The Bhutanese agent in India continued to function as before while political representative from India based in Sikkim contributed in looking after Bhutan.
Cabinet Mission
The Bhutanese were apprehensive about their future relations with India in years leading to the latter's independence. When the British Cabinet Mission had visited India in 1946, the Bhutanese authorities presented a memorandum about their country's separate identity as compared to the princely states in the then India. The Cabinet Mission had confirmed the political status of Bhutan and the latter remained autonomous when the British had exited the following year.
Nehru assured an apprehensive Bhutan
The
Bhutanese
were
still
apprehensive
about
India's
dominance
and
forged
an
alliance
with
Sikkim
and
Tibet
to
create
a
balance.
But
the
former
prime
minister
of
India,
Jawaharlal
Nehru,
assured
Bhutan
about
its
distinct
identity
and
autonomy.
Request
to
revise
1865
treaty
In
April
1948,
a
Bhutanese
delegation
arrived
in
India
and
urged
the
Ministry
of
External
Affairs
to
revise
the
treaty
signed
between
the
British
India
and
Bhutan
in
1865
after
the
Duar
War.
India
reciprocated
and
reiterated
its
respect
for
Bhutan's
independence
provided
the
latter
also
maintained
the
same
rapport
it
had
with
the
Britishers.
India also agreed to return the Dewangiri Hill strips in return for a revision of the essential provisions of the 1910 treaty. Bhutan also agreed to forgo its subsidy (as per the 1910 treaty) which it had received from India if it had returned 800 square miles of territory that the British had taken through the 1865 treaty.
Thimpu demands fresh treaty
Thimpu then demanded to enter into a fresh treaty with New Delhi which the latter welcomed, thinking that close relation with the Himalayan kingdoms would nullify any serious threat emanating from the Chinese side.
1949 treaty signed
Consequently,
India
and
Bhutan
signed
the
Treaty
of
Peace
and
Friendship
on
August
8,
1949,
in
Darjeeling.
The
treaty
was
signed
by
the
representatives
of
the
Government
of
India
and
the
Government
of
His
Highness,
the
Druk
Gyalpo
(the
King
of
Butan).
The
treaty
marked
a
continuation
of
the
Anglo-Bhutanese
treaty
of
1910
and
continued
with
the
British
legacy
of
treating
the
Himalayas
as
the
sentinel
of
India's
security.
Main
features
of
1949
treaty
The
main
feature
of
this
treaty
is
that
the
King
of
Bhutan,
for
the
first
time,
had
signed
a
treaty
as
a
sovereign
monarch
and
both
countries
expressed
the
desire
to
maintain
cordial
relations
with
each
other.
The
treaty
contained
10
articles.
Here
are
they:
Article
1
said
that
the
two
governments
will
have
a
perpetual
peace
and
friendship
between
them.
Article
2
reflected
the
spirit
of
Article
8
of
the
1910
treaty
by
declaring
that
India
would
not
interfere
in
Bhutan's
administrative
affairs
and
the
latter
would
be
guided
by
the
former's
advice
in
its
external
relations.
Article
3
saw
India
revising
the
annual
allowance
to
Bhutan
upto
Rs
5
lakh
(revising
Article
4
of
the
1910
treaty).
Article 4 saw India agreeing to return 32 square miles of the Dewangiri territory to Bhutan within a year of signing of the treaty.
Article 5 and 6 said both states would develop free trade and commerce and Bhutan would import arms, ammunition, machinery and warlike material only through India. Bhutan also agreed that there would be no export of arms and ammunition across its frontier either by its own government or any private individual.
Under Article 7, both countries agreed that subjects of both countries residing in each other's territory would enjoy equal justice.
Article 9 empowered both countries to extradite criminals taking refuge in each other's territory.
Special relation between the two neighbours
Through
the
1949
treaty,
Bhutan
entered
into
a
special
relation
with
India
and
laid
the
foundation
for
greater
assistance
for
its
economic
development.
The
Indo-Bhutan
treaty
became
the
cornerstone
of
Bhutan's
foreign
policy
and
the
Chinese
annexation
of
Tibet
in
1950
strengthened
this
relation
further
as
both
nations
began
to
see
a
common
threat
in
Beijing.
Nehru
says
aggression
against
Bhutan
is
aggression
against
India
The
relation
between
the
two
neighbours
had
a
fluent
run
till
1959.
In
1954,
the
then
Bhutanese
king
Jigme
Dorji
Wangchuk
visited
India
and
four
years
later,
prime
minister
Jawaharlal
Nehru
visited
Bhutan.
He
reiterated
India's
wish
that
Bhutan
remained
an
independent
entity.
Next
year,
when
the
Chinese
military
crackdown
in
Tibet
led
to
the
Lhasa
Uprising,
Nehru
even
told
the
Indian
Parliament
that
any
act
of
aggression
against
Bhutan
would
be
considered
an
act
of
aggression
against
India.
Signs
of
gap
between
the
two
countries
since
late
1950s
However, in 1959, when Bhutan requested India about participating in negotiations with the Chinese for resolving the Sino-Bhutanese border disputes in the wake of the Chinese repression in Tibet, India turned it down.
In
May
1960,
a
misunderstanding
arose
between
India
and
Bhutan
over
a
map
which
was
released
by
the
India
side.
Bhutan
said
the
map
had
not
shown
the
border
between
the
two
countries
as
an
international
one.
Later,
boundary
strip
maps
between
the
two
countries
were
signed.
But
the
Bhutanese
National
Assembly
or
Tshogdu
argued
that
it
was
time
for
Bhutan
to
have
direct
diplomatic
relations
(challenging
Article
2
of
the
1949
treaty).
Bhutan's
growing
assertion
Bhutan gradually began to assert its independence in the economic sphere. During the 1960s, it convinced India in having direct economic relations with other countries to work for its development. It negotiated with a Swedish company for establishing a paper factory in its own soil and also invited French nuns to develop medicinal services.
In 1961, Bhutan and New Delhi signed a pact to harness the Jaldhaka River for generating 18,000 Kilowatts (KW) of hydro-electric power of which Bhutan would receive free supply of 250 KWs. This project was completed in 1966. Besides, a 120-mile road was also built at the Assam border to connect Bhutan. India also constructed roads in Bhutan.
During the 1962 Sino-Indian war, some of the Indian troops had crossed into the Bhutanese territory. Bhutan complained to the Indian Army that it is a sovereign state and its king refused to offer base to the Indian troops for defence purposes. Bhutan stressed that the 1949 treaty was not a defence pact. Bhutan continued with its effort to establish an independent identity.
In 1962, Bhutan joined the Colombo Plan with India's assistance and received an international status for the first time.
In 1968, Bhutan attended the UNCTAD (United Nations Conference for Trade and Development) session in New Delhi and barred unauthorized foreigners, including Indians, from entering its territory. In 1969, Bhutan also started its own currency. In 1970, it formed its own foreign affairs department. In 1971, it was admitted in the United Nations (though with India's help).
The bilateral relation cruised smoothly till 1974 but thereafter, Bhutan again tried to play a more independent role in foreign policy. In 1978, the Bhutan Mission in India was renamed as the Royal Bhutanese Embassy, which was seen by many in India as a key diversion from the 1949 treaty. Thimpu also established diplomatic relations with Bangladesh and had its own standard time. In September 1979, the then Bhutanese king, Jigme Singye Wangchuk said that Bhutan did not consider India's advice on foreign policy issues as binding.
Bhutan asserted its independent stance at the Non-Aligned Movement (NAM) summit conference in Havana, Cuba, in 1979, by voting with China and some Southeast Asian countries instead India on the issue of allowing Cambodia's Khmer Rouge in the conference.
In 1980, Bhutan's foreign minister was elected as the chairman of the Economic and Social Council for Asia and Pacific (ESCAP) and it was seen as another big leap by the Himalayan state in the international arena.
In 1981, India decided to hold bilateral talks between Bhutan and China and also conducted a survey of the Sino-Bhutanese border area. Bhutan even sent a diplomatic note to the Chinese Embassy in New Delhi, which caused much ripple in the Indian establishment. In April 1984, Bhutan even began boundary talks with the Chinese.
Bhutan also reduced India's assistance in its fifth five-year plan by 43 per cent and found new patrons in various western countries besides international monetary and welfare organizations. This behavior clearly suggested that Bhutan was eager to deviate from the 1949 agreement and adhered to a more lose interpretation of the phrase ‘aid and advice of India'.
Give and take relations in 1990s
In the 1990s, the Indo-Bhutan bilateral relation was characterised by a more give-and-take relationship. Bhutan's king had praised India for making efforts for Bhutan's development and also appreciated the relationship which was marked by ‘mutual trust and equality'. It also developed good relation with the neighbouring states of the Indian Union like West Bengal and Assam. India also assured Bhutan protection from all anti-national activities, particularly on the issue of Nepalese refugees.
Bhutan's drive against anti-Indian elements from its soil in the early 2000s
In 1993, Bhutan reinstated its support for India and expected similar reciprocity from the latter. In 1996, the Bhutanese King said that Thimpu and New Delhi began negotiations on a mutual extradition agreement to deal with cross-border terrorism and organized crime. India, however, held the problem as Bhutan's own although assured it of security. It was a strategic move by India to ensure that elements in Bhutan did not go against India by accusing it of interfering and hence prevent them from going China's way.
Bhutan has always been a close friend of India which the latter must not forget
Bhutan, in lieu, backed India's stand on the Non-Proliferation Treaty and Comprehensive Test Ban Treaty, which were accused as discriminatory de-nuclearisation programmes and also supporting India's claim for a permanent seat in the UN Security Council.
Bhutan proved to be India's trusted friend in 2003 when it launched Operation All Clear and Operation Flush out against Indian insurgents taking shelter in its territory. Co-incidentally, a BJP-led government was in power in India at that time.
New challenges under new realities
But the relation between India and Bhutan faced new challenges under new realities. Both India and Bhutan have more engagement with China today compared to what it was sixty years ago, the second article of the 1949 treaty began to work more against India's interests. Pro-Chinese elements have criticized India over the article, accusing it of forcing its smaller neighbours into submission. But India could do without the article for Thimpu has been a close friend of New Delhi and there is very little reason that it will not remain so, irrespective of the treaty clauses because of its geographical disadvantages.
New treaty in 2007
Therefore, India negotiated a new treaty with Bhutan in 2007 whereby the provision requiring Thimpu to seek India's guidance in foreign policy was replaced with broader sovereignty and would not require Bhutan to get India's approval over importing arms. In 2008, the then prime minister of India, Manmohan Singh visited Bhutan and supported the country's progress towards democracy.
PM Narendra Modi focuses on Bhutan
In 2014, Prime Minister Narendra Modi chose Bhutan as his first foreign destination and during his two-day visit, Modi made overtures at the neighbour even while stressing an equal relation. Observers said it was an attempt to win back Bhutan as a means to balance the increasing Chinese influence in the Himalayan nation and also to take into confidence a new democracy. The Indian prime minister perhaps made the best blending of diplomacy and economy when he explained the idea of B2B as Bharat to Bhutan.
Bhutan is facing high unemployment rate and national debt and this could give the necessary opening to China to exert more influence in that country, something which will not leave India in a happy state of mind. Modi's effort was a sincere one to convey a message to Thimpu that despite India's growing importance in the world stage, the significance of its immediate neighbourhood hasn't diminished.
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