In the 21st century,as the economic and strategic centre of gravity shifts towardsthe Indo-Pacific region, the rapidly rising interconnectedness and inter-dependence between the Indian and the Pacific Oceans has resulted in a more integrated view of the two. The rise and increasing salience of the Indo-Pacific in regional and global discourses is coupled with intensegeopolitical churnings in the region. As the world strives to embrace the transforming geo-political realities in the region, Europe has so far not figured prominently in the debates around the Indo-Pacific. However, gradually European countries are beginning to pay attention to the region, particularly France and Germany which have been more proactive recently to acknowledge significance of the Indo-Pacific to Europe’s security and prosperity. TheFrench strategy for Indo-Pacific 2019stresses that “security of the Indo-Pacific is a strategic challenge”[1].German Foreign Minister Heiko Mass, while announcing the German Government’s policy guidelines on the Indo-Pacific, said that the “shape of international order will be decided” in this region[2] and that“Germany is working with theEuropean Union (EU) partners particularly France, for a European Indo-Pacific strategy”.[3]The Netherlands is the latest European country to release a new policy document outlining a new strategy for the Indo-Pacific region.[4]
This paper, aims to explore potential areas of India-EU cooperation in the Indo-Pacific region, as theregion gains traction in the policy discourse of Europe. Being close ‘strategic partners’ and having shared interests in maintaining a secure, stable and prosperous region; maritime safety and security, regional connectivity, support for stable multilateral order are some of the key areas which offer scope for strengthening India-EU cooperation in the region.
India and EU: Emerging Partners in the Indo-Pacific
India and EU have been strategic partners since 2004,however the focus of the relationship has been more on economic aspects and not so much on strategic issues. However, as EU begins to take cognisance of strategic significance of the Indo-Pacific and reassesses its role in the region,India would be a crucial partner for the EU. EU’s new India Strategy 2018 recognises the significance of relations with India, “inpursuing its security interests, promotion of effective multilateralism, growth and prosperityin the Asian region and tackling global challenges.”[5]
The Indo-Pacific essentially characterises the vast maritime geography ‘stretching from the shores of Africa to that of Americas’ incorporating the Arabian Sea /Gulf region, the Indian Ocean, the South China Sea and the Pacific Ocean.India is a crucial player in the Indo-Pacific region, given its strategic location at the centre of the Indian Ocean and its extensive coastline of 7500 kms, growing, economic, maritime military capabilities, strategic ambitions in the wider Indo-Pacific and keenness to strengthen partnerships with countries across the region.
Europe, although geographically not a part of the Indo-pacific region, a large chunk of Europe-Asia trade passes through the critical chokepoints located in the Indo-Pacific region. Any threat to the vital sea lanes and bottlenecks, and any conflict in the region, challenging the flow of energy and commerce, will have a direct impact on Europe’s prosperity and security”.[6] Given these stakes, many policymakers in Europe have begun to recognise EU as a key stakeholder in the security of the Indo-Pacific.
As the Indo-Pacific becomes the centre of global attention,multiple visions and strategies for the region have come up, which are not identical but have certain complementary elements. India’s vision was eloquently articulated by Prime Minister’s NarendraModi in his speech at the Shangri-La Dialogue 2018, which emphasises on inclusivity along with freedom and openness.Japan’ and US’ strategy calls for a ‘free and open’ Indo-Pacific. In Europe, significantly, France, which is an Indian Ocean Region state, owing to its overseas territories of Mayotte and La Réunion Islands, released a French Strategy on the Indo-Pacific in2019, putting forward a holistic vision for an inclusive, stable, law-based, multipolar order in the region. In September 2020, Germany announced formal policy guidelines for the Indo-Pacific,which among other things reiterate values of multilateralism, rules based order, open markets, connectivity, inclusivity and need to diversify relations across the region. The Netherlands policy document emphasises on need for greater cooperation between the EU and the countries in the region “for free passage and guarantee maritime safety” and emphasises that “the EU must speak out more often and more firmly on developments in the South China Sea, which are in violation of the UNCLOS”.[7]As EU works on its own Indo-Pacific strategy it is likely to have similar elements and values which can open up opportunity for deeper cooperation between India and EU in the region.
Prospective Focus Areas of Cooperation
Regional geopolitical compulsions will certainly play an important role in shaping the course of India-EU relationship. Geopolitics of the Indo-Pacific region is undergoing unprecedented transformation given the complex interplays among regional and global players;COVID-19 pandemic has further accelerated that change.One of the key factors that have influenced the geopolitical churn in the region in recent years has been the rise and increasing assertiveness of China, about which there is a certain degree of concern in India and in Europe. The expansive, non-transparent and unsustainable nature of Beijing’s’ extensive projects under Belt Road Initiative (BRI) andits increasing footprint in the Indian Ocean have in particular caused apprehensionsamong the regional countries. In addition, increasing friction between the US (United States) and China, uncertainty over US’ commitment in Eurasia andthe South China seaconundrum have all resulted in a situation where security balances in the region looks uncertain. A major challengefor EU has been balancing its relationship with China and the US, to avoid getting caught into a zero-sum game. Although it is difficult for EU to have a comprehensive approach on China as opinions within EU are not uniform but the EU’s 2018 China Strategic Outlook did note that China is a “systemic rival and economic competitor”.[8]
Increasing competition, power rivalry, unilateral actions challengingthe multilateral order and international laws are some of the common concernsshared by India and Europe. With an enhanced focus on their strategic relations and engagement with other like-minded regional players, India and EU can play a significant role in preserving an open, free, inclusive and rules based order.
A focus area where India and EU need to work together is maritime cooperation. For India,the geographical location of the country inextricably links its security, commerce and trade with the maritime domain. 90% of the EU's external trade and 40% of its internal trade is transported via sea routes.[9]Around two thirds of international sea trade passes via the sea-lanes across the Indo-Pacific region.[10] The Indian Ocean particularly has become a key strategic arena surpassing the Atlantic and the Pacific Oceans as the world’s busiest trade corridor. Despite geographical distance, the Indian Ocean has significant economic and strategic value for Europe as it serves as the primary gateway for Europe to the Asia-Pacific marketthrough the Suez Canal. Therefore, safety and security of the crucial sea lanes in the region and good governance at sea which is challenged by both traditional and non-traditional threats, is critical not only for the regional countries but also for European economic stability.
EU has been active in anti-piracy operations through EUNAVFOR ‘Operation Atlanta’ launched in 2008 in the Gulf of Aden;more such initiatives need to be taken. The EU Maritime Security Strategy (EUMSS) of 2018 reiterates EU’s commitment to international cooperation to address global maritime risks.[11] As Europe treads waters for engagement away from home, India with its strategic location, large navy and coast guard presence in the Indian Ocean and also with willingness to build partnerships across the region for a free, open and secure maritime space will be a crucial partner for the EU.
Some of the crucial areas that India and EU can work together include joint efforts in capacity building against challenges like piracy, counter-terrorism, illegal fishing and other maritime crimes in the region. Cooperation inHADR, enhancing interoperability and domain awareness, maritime technologies, port development, connectivity infrastructure, blue economy, marine ecology, management of marine waste could be crucial areas of focus for future cooperation.
Infrastructure and connectivity should be another focus area in EU-India cooperation.As Europe begins to realise the broader economic, political and security implications of China’s BRI, the initial enthusiasm seems to be turning into a concern about viability and transparency of Chinese projects in Europe. French President Emmanuel Macron,speaking at the EU Summit in 2019 in Brussels, said that letting Chinese companies access EU infrastructure such as strategic ports had been a “strategic error”.[12]EU is,therefore, willing to collaborate with like-minded partners in the region to bridge infrastructural gaps and in a bid to provide a sustainable alternative to BRI.[13]EU released a Connecting Europe and Asia:Building Blocks for an EU Strategy in 2018 which emphasised the need for EU-Asia collaboration in promoting comprehensive, sustainable and rules based connectivity.[14]Under this,EU and Japan agreed on Partnership on Sustainable Connectivity and Quality Infrastructure in 2019, to coordinate actions based on a level playing field. India isalso engaged with Japan to promote connectivity between sub-regions of Asia and Africa through the Asia Africa Growth Corridor’ (AAGC) “fine-tuned with development needs and priorities” of the concerned countries.[15]
The ‘EU-India Roadmap to 2025’ emphasises that joint efforts should be made to promote connectivity in line with ‘international norms, principles of sustainability both fiscal and environmental, transparency and inclusiveness’.[16]There is, therefore, scope for India and EU to explore possibility of such collaboration to enhance connectivity between India and EU as well as in third countries in the wider Indo-Pacific region.
As both India and EU share belief in effective multilateralism, another potentialarea of cooperation is in regional multilateral institutions. India participates actively in the regional multilateral platforms including the ASEAN, East Asia Summit (EAS), and IndianOcean Rim Association (IORA), Indian Ocean Naval Symposium (IONS) which provides opportunity for cooperation with key regional partners on regional and global issues. As a strategic partner of ASEAN, EU should explore possibility of more active cooperation in common areas of interest. Both EU and India are dialogue partners of ASEAN Regional Forum and EU has also expressed interest in joining the EAS as an observer. These will enable EU to engage with India and other regional countries in common areas of interestsand concerns.EU can also make efforts to coordinate actions with the Quad, which is slowly gaining momentum.
The Road Ahead
There is a growing realisation of the need for a larger European role in the region, as the European strategic community has begun to acknowledge that strategic and economic interests of Europe are intrinsically linked to the Indo-Pacific region. Geopolitical changes in the Indo-Pacific will have direct and indirect implications for Europe- whether it chooses or not. Therefore, it is time for EU to have a coherent strategy for the region. Increasing convergence of interests and shared values offer scope for deepening India-EU cooperation in the region to secure global commons, maintain stability and support economic prosperity in a cooperative manner and together shape a stable multipolar order.
As India and EU look forward to deepeningcooperation in the context of the Indo-Pacific, following should be considered by both sides:
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*Dr. Pragya Pandey is a Research Fellow at Indian Council of World Affairs.
Discliamer : The views expressed are personal
[1]France and the Security of Indo-Pacific, Minister for the Armed Forces, 2019, P. 2
[2]Foreign Minister Maas on the adoption of the German Government policy guidelines on the Indo-Pacific region, German Federal Foreign Office, 02.09.2020 - Press release, https://www.auswaertiges-amt.de/en/newsroom/news/maas-indo-pacific/2380474
[3]Ibid
[4]After France and Germany, the Netherlands pivot to the Indo-Pacific – Le diplomate,November 18, 2020, https://www.fr24news.com/a/2020/11/after-france-and-germany-the-netherlands-pivot-to-the-indo-pacific-le-diplomate.html
[5] India: Council adopts conclusions on a new EU strategy, 10 December 2018, Council of European Union, https://www.consilium.europa.eu/en/press/press-releases/2018/12/10/india-council-adopts-conclusions-on-a-new-eu-strategy/
[6] Speech by Minister of State Annen at the reception of Foreign Secretary Vijay Gokhale on the occasion of the Raisina Dialogue 2020, 14.01.2020https://www.auswaertiges-amt.de/en/newsroom/news/annen-raisina/2292714
[7]After France and Germany, the Netherlands pivot to the Indo-Pacific – Le diplomate,November 18, 2020, https://www.fr24news.com/a/2020/11/after-france-and-germany-the-netherlands-pivot-to-the-indo-pacific-le-diplomate.html
[8][8] EU-China Strategic Outlook, European Commission, 12 March 2019, https://ec.europa.eu/commission/sites/beta-political/files/communication-eu-china-a-strategic-outlook.pdf, p.1
[9] Maritime security: EU revises its action plan, Council of the EU, Press Relaese, 26 June 2018,https://www.consilium.europa.eu/en/press/press-releases/2018/06/26/maritime-security-eu-revises-its-action-plan/
[10] ‘Germany-Europe-Asia: Shaping the 21ST Century Together’, Policy guidelines for the Indo-Pacific, German Federal Government, 2020, https://www.auswaertiges-amt.de/blob/2380514/f9784f7e3b3fa1bd7c5446d274a4169e/200901-indo-pazifik-leitlinien--1--data.pdf, p. 24
[11] Maritime security: EU revises its action plan, Council of the EU, Press Release, 26 June 2018,https://www.consilium.europa.eu/en/press/press-releases/2018/06/26/maritime-security-eu-revises-its-action-plan/
[12] EU leaders call for end to 'naivety' in relations with China
Reuters, 22 March 2019, https://in.reuters.com/article/us-eu-china/eu-leaders-call-for-end-to-naivety-in-relations-with-china-idINKCN1R31H3
[13]Garima Mohan, ‘Europe in the Indo-Pacific: A Case for More Coordination with the Quad Countries’, January 14, 2020, Policy Brief, German Marshall Fund of the United States, https://www.gmfus.org/publications/europe-indo-pacific-case-more-coordination-quad-countries
[14] Connecting Europe and Asia - Building blocks for an EU Strategy, European Commission, 19 September 2018, https://eeas.europa.eu/sites/eeas/files/joint_communication_-_connecting_europe_and_asia_-_building_blocks_for_an_eu_strategy_2018-09-19.pdf
[15]Asia Africa Growth Corridor: Partnership for Sustainable and Innovative Development, A Vision Document, Africa Development Bank Meting, Ahmedabad, India, May 2017, http://www.eria.org/Asia-Africa-Growth-Corridor-Document.pdf, p.6
[16] The Partnership on Sustainable Connectivity and Quality Infrastructure between Japan And the European Union, Ministry of Foreign Affairs, Japan, 2019, https://www.mofa.go.jp/files/000521432.pdf