Foreign
affairs play a fundamental role in Bhutanese politics. The established
political system is structured in a way that defines a clear
division between internal and external spheres, positioning
the monarch at the interface. This allows for strong, flexible
and swift decisions and responses. The situation is further
accentuated by the country's seclusion during much of its history,
and the enduring control that the state maintains over internal
matters. A particularly distinctive stance is reflected in the
policy of self-imposed isolation pursued during the period when
the British occupied India. This tactic undoubtedly fostered
internal political and cultural consolidation and facilitated
the maintenance of the nation's sovereignty and independence.
The overall approach adopted following the ongoing process
of integration and the associated intensification of external
relations remains strongly informed by a boundary perspective.
Whereas the country has accepted supervision of its external
affairs, it aims to tightly control influences on the internal
environment, particularly with regard to commercial interests
and cultural penetrations. Bhutanese diplomacy has pursued
three broad interrelated objectives: the preservation of the
country's independent status; the safeguarding of the nation's
sovereign integrity, including the promotion of nationhood
and the conservation of its religious, cultural and ecological
heritage; and the sponsorship of development and modernization
processes whilst encouraging self-reliance (particularly within
the economic sphere).
At the core of foreign policy is the relationship with India,
with whom Bhutan is closely allied and heavily dependent on
for independence, trade and aid. Relations could be described
as intimate, with India as the principal development partner,
providing significant technical and economic assistance, maintaining
a military presence within the Kingdom and exercising significant
influence over external affairs. Notably Bhutan has not become
involved in any political brinkmanship, attempting to play
off the agendas of its neighbors in an attempt to gain short-term
advantage.
Following international integration, the country joined the
Colombo Plan in 1962, the International Postal Union in 1969
and in 1971 became a member of the United Nations. Multilateral
relations have been developed with SAARC, the UN and the EC.
Personal bilateral relationships have been expanded to include
Bangladesh, Japan, Denmark, Switzerland and the Netherlands.
There is not a heavy NGO presence - there are representations
from WWF and Save the Children- with the state favoring the
consistent channeling of assistance through government institutions.
Although remaining dependent on foreign aid, the extent of
aid financing is limited by the objective of long-term self-sufficiency.
Rare among developing countries, Bhutan does not try to attract
as much assistance as possible, and does not accept all aid
offered.
With porous borders, Bhutan cannot detach itself from regional
issues of poverty, migration and instability. Although not
a recent occurrence - there was already a significant presence
by the turn of the Twentieth Century - the matter of Nepali
migrants streaming through the southern border and settling
within the country reached a head in the late 1980s and early
1990s. The insurgency was sparked off by a 1988 census that
discovered thousands of illegal immigrants in the southern
districts, a subsequent policy that set 1958 as the cut-off
date for the granting of Bhutanese nationality and attempts
at strengthening the national identity (which included the
symbolic introduction of a national dress code). By the spring
of 1990 events took a marked turn for the worse: the one side,
buoyed by the recent "democratic" successes in Nepal,
took to launching a campaign against the monarchy and the
Royal Government; the other side stuck to its policy of expelling
"illegals", labeling the rebels "anti-nationals".
The manner in which violence escalated on both sides was exceptionally
damaging, as allegiances swiftly polarized. The problem has
now pretty much diffused, although the scars remain, and there
is still the thorny issue of much-inflated refugee camps existing
in limbo across the border. The fact that the public relations
campaign was won by the rebels has led to many negative and
imbalanced reports "by gullible, unprofessional, or sympathetic
news organizations in Nepal and India
picked up thirdhand
by the international press" (Crossette (1995:30)). The
"Southern Problem" has unfortunately (and unfairly)
come to define Bhutan and its prevailing regime in the international
arena.
Although sadly destructive, the incident is instructive in
highlighting certain national and regional political contexts.
At its foundation is the regional population explosion (notably
among the Nepali community), the subsequent exacerbation of
poverty and substantial migratory movements across the Himalayan
region. This massive and relentless influx is the major factor
behind Sikkim's erosion of sovereignty and then loss of independence
in 1974, and the instabilities associated with the Gorkhaland
movement in the Darjeeling area. Neither of these changes
proved particularly beneficial. The protective Bhutanese were
acutely aware of these trends and sought to mitigate a similar
situation. That a degree of heavy handedness was involved
(albeit overstated) in the response to the agitation, particularly
as it filtered down through society, may be explained within
the national political culture. To have very openly criticized
the King and challenged his rule was culturally unacceptable
- tantamount to reacting against the nation itself - and threatened
a key source of popular identity. Furthermore, although the
conflict was couched in terms of national security, democracy
and ethnicity, it is likely that individual agendas and personal
politics may have been hugely influential on both sides. In
this sense the situation may be interpreted as having developed
from within the prevailing system, before a host of wider
issues were incorporated.
Bhutan's inherent vulnerability to events unfolding all around
it continues. No sooner had the "Southern Problem"
abated than a possibly much more chronic one emerged. The
nation's most critical current political issue centers on
the presence of ULFA (United Liberation Front of Assam) and
Bodo insurgents in southeastern Bhutan. These groups are fighting
a well-supported and well-armed struggle against the Indian
government. Settling in camps and interacting with the local
population, they have come to use Bhutan as a safe-haven from
advancing Indian military offensives. Anxious to protect its
sovereignty, Bhutan has been reluctant to allow a sweeping
Indian military campaign on its soil. However, the room for
maneuver is continually reducing, with significant Indian
pressure from one side and threats of major reprisals from
the other. There is a very real danger that Bhutan may become
embroiled in a war that has no direct relevance and potentially
will have no conclusive winner. Already minor skirmishes have
occurred and there has been much ecological destruction from
uncontrollable poaching activities. However, such losses may
appear negligible, as a dark threatening cloud hangs over
the Land of the Thunder Dragon. That it should have blown
in from outside is unsurprising, the unavoidable consequence
of geographical and geopolitical realities.
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