27 September 2020, NIICE Commentary 6032
Lobzang Dorji
The landlocked Himalayan country has nonetheless become increasingly important strategically to both New Delhi and Beijing. There is an apparent paradox in Sino-Bhutan ties in the region. Historically, Tibet and Bhutan shared a long tradition of cultural and religious interaction with the common border to China. However, China and Bhutan have not established diplomatic ties. At present, the common border remains closed without economic contact with one another.
Bhutan and Tibet relationships is an important scholarship to understand Sino-Bhutan ties in the region. Historically, the outcome of Tibet and Bhutan engagement resulted in the evolution of Bhutan’s social and political institution during medieval period. For Instance, the visit of Tibetan saint Zhabdrung Ngawang Namgyel and Thangthong Gyalpo to Bhutan has reshaped the social and political institution in a country. The battle of Cooch Bihar war in 1772 invited the involvement of British East India Company labelling Bhutan as trade and political channel to Tibet. In the events of world wars, the apprehension of Soviet threat of Communism to Tibet led Ugyen Wangchuk to be able negotiator in Young Husband Mission of 1904 between British East India Company and Tibet. Further, the establishment of Wangchuk dynasty in 1907 has embarked on the signing of Punakha Treaty in 1910 with British East India Company. Meanwhile, the freedom struggle movements in India gifted independence status to India from British in 1947.
Further, the emergence of People’s Republic of China and independent India in late 1940’s have compelled Bhutan to choose the policy of self-isolation. Independent India have sown the seed of friendship with Bhutan by signing the Treaty of Sinchula in 1949. On the other hand, Chinese annexation of Tibet in the mid 1950’s generated cultural shock and fear to sovereign Bhutan. In the age of political insecurity, the visit of Pandit Nehru to Bhutan in 1950’s has given the degree of reassurance to safeguard her independence. This event led to end the policy of isolation with the soft power influences from India. Meanwhile, tension escalated between China and India subject to Tibet. China and India reach at the stage to wage war against each other. Thus, in 1961 India with her economic strength must have woed Bhutan being strategic location by financing first Five Year Plan to Bhutan. Simultaneously, Sino-India war of 1962 created tension to sovereign Bhutan as its territory was adjacent to battlefields. Subsequently, to maintain her status quo, Bhutan adopted the policy of neutrality in region. It has shown pragmatic and effective diplomacy. It is evident from Bhutan joining several international organisations including the United Nations with the Indian support.
Prior to 1959, the dispute territorial claims between Sino-Bhutan are unknown and nobody expressed the demarcation of territorial jurisdictions while China claimed the disputed areas on the basis of historical context. As a result, several border talks were held between Sino-Bhutan to resolve a territorial dispute but Indo-Bhutan treaty forbid Bhutan to dialogue directly made Chinese approach infeasible before a complete normalization of Sino-India relations. Hence, the progress has been slow on Sino-Bhutan border issues since 1984. The only hope for Thimphu was to maintain her status quo and to await the improvement in Indo-China relations. However, Bhutan and China signed an “Agreement on Maintenance of Peace and Tranquility in Bhutan-China Border Areas” which is a historic landmark step for the global relation between two countries and an important milestone for Bhutan having signed their first intergovernmental agreement. At the same time, New Delhi policy of “beneficial bilateralism” paved the way for a normalization of ties between India and China. Nevertheless, Bhutan had to still adjust treaty commitments to India on Sino-Indian relations as Indian factors remain a key element in Bhutan’s China policy.
The introduction of Democratic Constitutional Monarchy in Bhutan culminates in the renewal of the Indo-Bhutan treaty of 1949. The Indo Bhutan treaty of 2007 gives freedom to implement her foreign policy without advice and guidance from India. Still Bhutan has not looked for any scope to maintain bilateral relations with China at the cost of undermining historical ties between Bhutan-India. In fact, Bhutan was following her policy of neutrality to balance the equation between two giants in the region. Bhutan continued to maintain warm and cordial ties with India due to its awareness of the role of India in Bhutan’s diplomacy, defense and economy. Besides, His Majesty the King articulated to the nation on China and India experiencing unprecedented economic growth propelled by technological advancement. Accordingly, the concept of 21st Century Economic Roadmap became a national initiative to chart out Bhutan’s long-term economic direction and short term and medium-term plans, programs and policies with the central goal of maximizing Gross National Happiness. On the contrary, China and India are the two most powerful actors in a region and global system influencing the development of cooperation and partnerships through economic, political and military clout. As a result, Bhutan needs to carefully calculate the spillover effect of two giants while implementing any plans, programs and policy both at local and regional level.
Technically, Sino-Bhutan border territorial dispute and Sino-India border issues are not related to its status quo, but are politically related. The only hope for Bhutan is to await the improvement in Indo-China relations in the region by pursuing the policy of balancing act. In future, Bhutan will face new challenges with China and India’s diplomacy traits while maintaining their presence in a region. Given those constraints, Bhutan will have to keep a low profile in an international arena and must avoid taking part in South Asian political games. Sino-India and Bhutan may also need to consider trilateral cooperation in the areas of non-traditional security. Sino-India and Bhutan need to begin effective trilateralism with mutual efforts to support each country’s core strategic vision and can lead to the normalization process in a region. Three countries can pursue trilateralism raging from high-level strategic dialogues to resolve the border disputes. Improving relations among China, India and Bhutan provides an opportunity to move bilateral relationships and trilateral relations to new heights. However, the worry is on pragmatism among the leaders in these countries.
