17 India-Afghanistan Relations

Dr. Ashok Attri

Structure of the Module

1. Introduction

2. Objectives

3. Historical Evolution

3.1 Period of Cordial and Mutual Understanding

3.2 Period of Confusion and Policy Absence

3.3 Period of Hostile and Nefarious Activities

3.4 Period of Re-strengthening the Mutual Relations

3.4.1. Active Participation in Various Meetings for the Reconstruction in Afghanistan

4. Conclusion

5. Important Questions

6. Suggested Readings

1. Introduction

India has no direct border-sharing with Afghanistan, yet both share common history and interests. Land-locked Afghanistan has always been the traditional invasion route to the Indian subcontinent. Its passes of Khyber and Bolan have been the entry points for most of the invaders i.e. Huns, Sakas, Mongols and Mughals to India. In British period, both have experienced same colonial rivalerly and its bitter taste. They have been the great supporters of non-alignment movement in post-Second-World War period. India was the only South Asian country to recognize Afghanistan as a communist state after Soviet invasion. India provided strategic help to US led forces in dismantling ‘Taliban’ rule from Afghanistan. After that, India is becoming largest Asian country to provide reconstruction aid to this war-torn country. All these facts have contributed to close and warm ties between India and Afghanistan in the twenty first century.

Afghanistan’s importance has enhanced considerably, due to its geo-strategic and geo-political implications for Indian security. The Afghanistan serves not only as a historical buffer zone but also as a convenient transit route connecting other major regions. Its location alone is a good indicator of its political and strategic significance. Due to its strategic location and demographic composition, Afghanistan has become vital for global politics in general and India in particular. It remained arid shatter zone of endemic conflict in post second world war period. Ethnicity and its geo-strategic position are the key complexities in Afghanistan. An understanding of these aspects is vital for its overriding impact on external policy of Afghanistan. India has privilege of enjoying goodwill with these states due to long historical linkages. From the geo-strategic point of view, there has always been a strong convergence of interests between India and Afghanistan from the very beginning.

2. Objectives

For India, the Afghanistan has always remained an area of high priority due to historical, political, cultural and geographical reasons. Having been a victim of power game in post World War II, Afghanistan considered India a natural ally due to non-aligned policy. Both the countries developed their relations on these lines during cold war period. In post-cold war period, Afghanistan draws special attention and importance in Indian perspective in the light of its deteriorating relations with Pakistan on the one hand, and the emergence of fundamentalist ‘Taliban’ on the other hand. These new emerging trends in this region are bone of contention and going to provide problems for India’s security. Besides, Afghanistan’s importance in Indian perspective is also perceived due to its role as a transit route provider towards Central Asia’s natural resources.

Through this module an effort will be made to apprise the students about the real nature of India’s relations with Afghanistan. Afghanistan has always remained hotbed for power struggle in cold war period. India as an immediate neighbor could not remain mere spectator in this scenario. The importance of India’s stake in Afghanistan is further highlighted because of India’s not-so-friendly relations with China and Pakistan. It could not take risk to ignore Afghanistan in its policy orientation. On the other hand, historical and cultural links provide common ties of interests which have formed the basis of friendly relations. Therefore, it becomes imperative to understand and evaluate the historical perspective about the origin of their relationship. Besides, this is also important to know about the importance of Afghanistan as transit route facilitator to enriched Central Asia in Indian perspective. By doing so, one can analyze the real nature of India’s relations with Afghanistan. This will not only prove beneficial for the students, but foreign policy architects and strategists could also use basic clues in policy formulation.

3. Historical Evolution

India and Afghanistan have shared much in common being the nation-states. Diverse demographic composition, commonality in form of legacies of struggle against British imperialism and non-aligned posture in post World War II had provided the platform for common understanding. But it could not happen and remained to be unexplored for most of the time. Ethnic rivalry and big power game changed the entire scenario in this region. Soviet Intervention in Afghanistan and rise of fundamentalist ‘Taliban’ had changed all contours of India’s foreign policy in the late twentieth century. But after the demise of Taliban in 2001, Afghanistan has emerged as the core area in Indian foreign policy objectives. India had done a lot to rearrange its ties with Afghanistan. The latter has also shown great maturity and close understanding towards Indian perspectives. In order to make an objective analysis of all these initiatives, it is better to start with brief acknowledgement of their relationship from early past to till date. India’s relations with Afghanistan could be discussed in following broad spectrum: (i) Period of Cordial and Mutual Understanding (1947-1970); (ii) Period of Confusion and Policy Absence (1971-1992); (iii) Period of Hostile and Nefarious activities (1993-2001); and (iv) Period of Re-strengthening the Mutual Relations (2001 onwards)

3.1 Period of Cordial and Mutual Understanding

Shared history and interests of India and Afghanistan have contributed to a close and cordial linkage in the initial stage of their relationship. Afghanistan participated in the Asian conferences in March 1947 and January 1949 held with the direct Indian initiatives. Being a land-locked state, Afghanistan was the firm believer of maintaining a policy of ‘neutrality’ in power politics, hence, pursued the policy of friendship with all states. This posture had converged with India’s policy of non-alignment in its international relations. Their views on several other issues were also similar, such as colonialism, world peace and equal opportunities of progress as nation-state.

At bilateral level, both, India and Afghanistan, signed the ‘Treaty of Friendship’ in 1950. It formalized full diplomatic relations and gave boost to political, economic and cultural interaction. From the geo-strategic point of view there has always been a strong convergence of interests between the two. Hostile relations with Pakistan have compelled India and Afghanistan to share common approach with this immediate neighbour. Another similarity was noticed that International Politics made both India and Afghanistan aligned towards Soviet Union gradually. They became main buyers of military equipment for security arrangements from Soviet Union in this period.

King Mohammed Zahir Shah paid a state visit to India in 1958. He was followed by Prime Minister Daud in 1959. Indian Prime Minister J.N. Nehru paid reciprocal visit in the same year; all these initiatives show the real positive beginning in their relations. Both countries shared common approach on various issues related to international politics.

Only thing that brought some tense moments for India was the Sino-India war of 1962. Afghanistan remained reluctant in condemning China’s aggression. Hence, India could not take it as anti-India posture. This is clearly shown by the high level visits taken place from Indian side at that time. President Radhakrishnan’s visit of 1963, Foreign Minister, Swaran Singh’s visit of 1964, Vice-President Zakir Hussain’s visit of 1966 and Prime Minister Indira Gandhi’s visit of 1969 were the clear indication of mutual understanding and faith between India and Afghanistan. The Afghan side also was not far behind in reciprocal visits to India. Prime Minister Sardar Ali Mohammed Yusuf visited India in 1965. King Mohammed Zahir Shah paid his second state visit to India in 1967. All these initiatives strengthened the existing goodwill between the two countries. The brighter side of their bilateral ties was that there was no problem in their relations. Hence, India and Afghanistan enjoyed this goodwill for a long time.

In economic relations, both the countries agreed to bring about more systematic trade arrangements through these visits. India offered its training facilities in the areas of agriculture and small-scale industries. An ‘Indian Experts Team’ also visited to explore available opportunities there, and several projects were outlined. A Joint Commission was also established at ministerial level to explore the various areas of mutual benefits by taking care of respective resources and capabilities of each other’s country.

3.2 Period of Confusion and Policy Absence

Afghanistan had started to experience political instability at domestic front in the decade of 1970s. King Mohammed Zahir Shah was deposed by his cousin Daoud Khan who took control of the government. After that, this power game became more complicated as Mohammed Daoud Khan was also overthrown by Noor Mohammed Taraki in a coup and became President. Hafizullah Amin became the power centre under this regime. He tried to enforce total control over tribal society with a brutal and violent handed fashion. It gave birth to widespread revolt among the masses. Simultaneously, Soviet presence and influence had been growing in Afghanistan in this decade. The ongoing power struggle between Hafizullah Amin and Taraki-Babrak Karmal paid the way to Soviet military invasion in 1979. Soviet Union imposed communist government in Afghanistan. It destroyed the traditional neutrality of Afghanistan. With the active participation of USA and Pakistan’s ISI, Afghanistan was transformed into hotbed of Jihad ideology. After that, Afghanistan turned out to be a failed state from a buffer state in war like situation.

On the other side, India was also passing threw a phase of political instability in mid-seventy. State emergency imposed by Indira Gandhi in 1975 had created influx in political system. This situation gave birth to some serious questions about India’s domestic democratic set up. After her defeat in General elections, new government headed by Morarji Desai remained busy in internal politics. India was not in a position to play any role in Afghanistan to a great extent. The political regime could not give much attention to its foreign relations in its short term. India’s policy towards Afghanistan either was influenced by it’s alienation towards Soviet Union or no policy prevailed at that time.

India was the only South Asian country to recognize communist government headed by Najibullah after the Soviet invasion of 1979. It fully supported and provided financial aid to Afghanistan government during this period. Although, India supported this government till the takeover of Afghanistan by Taliban, yet India could not do much more in bilateral relations. It was not in a position to play any role there due to economic and strategic constraints. Indian leadership also showed some reluctant approach towards Soviet Intervention in Afghanistan. It took the stand of neutrality and gave emphases on the recall of Soviet Army from Afghanistan without any delay. It was understood that the Prime Minister Indira Gandhi wanted to retain its non- Align posture in third world countries and wanted to maintain some distance towards Soviet Union. It created some confusion in the policy orientation towards Afghanistan. Besides, situation in Afghanistan worsen day by day with the direct confrontation between Soviet Guard and Afghan Mujahideen aided by foreign powers. The rapid politicization of Islam and emergence of a militant Islamic fundamentalist movement took place in this country. After that, India’s relations remained in a situation of adjournment with Afghanistan in this hostile scenario.

3.3 Period of Hostile and Nefarious Activities

The conflict situation in this country has taken a new turn following the Soviet demise. Afghanistan has continued to be remaining epicenter of massive military confrontations. After that, struggle among different ethnic and tribal groups started primarily in order to win control over the central power. Religious extremist forces led by Burahnudin Rabbani supported by Pakistan, Saudi Arabia and UAE seized power there. But this area remained hotspot of ethnic conflict and rivalry in this war-ravaged Afghanistan.

The phenomenon of ‘Taliban’ came to fore-front in Afghanistan in the year of 1994. The continuous bleeding and war like situation ultimately led to a crippled and seriously injured economy and political system. India’s foreign policy had no space in this bizarre and changed situation due to emerging role of Pakistan. ‘Taliban’ and ‘Al Qaida’ supported by Pakistan took over the reins of Afghanistan. It brought complete breakdown in Indian presence there. India lost all political and diplomatic links with Afghanistan. The destruction of the ‘Bamiyan Buddha Monuments’ and hijacking of Indian Airlines Flight 814 and its landing in Kandahar had reflected the nefarious design of hostile ‘Taliban’ towards India. It led to outrage and furious response from Indian side as it became key supporter of the anti-Taliban Northern Alliance and provided economic and strategic aid. India also offered its all type of strategic support for the US led coalition forces in the war against Taliban in 2001 in the light of 9/11 tragedy. It led to overthrow the oppressive rule of Taliban from Afghanistan.

3.4 Period of Re-strengthening the Mutual Relations

After the demise of Taliban rule in November 2001 and establishment of interim Government in Kabul, bitter experiences of Taliban regime made India to rethink Afghanistan with more cautious approach. Since then, India has been engaged with Afghanistan at bilateral and multilateral platforms. India established diplomatic links with the up gradation of Indian Liaison Officer to Embassy there. It also established Consulate missions in Mazar-e-Sharif, Herat, Kandahar and Jalalabad. It has played an important role in the reconstruction and rehabilitation program in Afghanistan. India is also actively participating in various meetings that concluded for the strengthening of Afghanistan setup. These efforts could be analyzed in these broad spectrums:

3.4.1. Active Participation in Various Meetings for the Reconstruction in Afghanistan

India was among the 21 countries that participated in the meetings held at New York in November and December 2001, in which the issue of interim authority and reconstruction of Afghanistan was the main agenda. Indian special envoy, Satish Lamba, participated as observer in Bonn Conference held from November 27 to December 5, 2001. Arun Shouri, minister of Disinvestment led the Indian delegation in the Tokyo Ministerial meeting. India actively took part in every ‘Steering Group meetings of Donors’ and Afghan Support Group meetings held time to time.

India, with the collaboration of UNDP, organized a Joint Conference on South-South Cooperation and Reconstruction of Afghanistan in May 2002. Foreign Minister of India attended the ‘Friends of Afghanistan meeting’ in September 2002. Foreign Secretary led the Indian delegation to the International Conference ‘Afghanistan and the International community-A partnership for the Future’ held in Berlin on March 31-April 1, 2004. India also reiterated its commitment to support the development of Afghanistan in the recently held various Afghanistan Conferences in Istanbul (November 2011), Bonn (December 2011), Kabul (June 2012) and Tokyo (July 2012).

3.4.2. High level Visits

Since 2002, large number of exchanges of high level visits of delegates-governmental, private, commercial, entrepreneurial-have been undertaken between the two since 2002 to explore the possibilities of mutual grounds for enhancing cooperation. President Karzai has visited India in 2002, 2003, 2005, 2006, 2007, 2010, 2011, 2012, 2013 and 2014. India granted million of dollars for reconstruction work in Afghanistan. Besides, various agreements were also envisaged in the field of civil aviation, road construction, media, rural development and education in these visits. These frequent visits of President Karzai to India have reflected the real political and strategic partnership between the two countries in these years.

Form Indian side, Prime Minister Manmohan Singh, paid reciprocal visits to Afghanistan in 2005 and 2011. India again provided grant in aid of US$650 millions for the economic development of Afghanistan. Three important agreements were also signed in the field of small development project, healthcare and medical science and agriculture research and education.

At ministerial level, Foreign Ministers of India Jaswant Singh (2001), Yashwant Sinha (2002), Natwar Singh (2004) and Pranab Mukherjee (2007) were on the top of visitors list to Afghanistan. Other visitors, MoS (EA) E. Ahmed (2005), MoS (Tourism) Renuka Chowdhury (2005) and Saifuddin Soz Minister of Water Resources (2007) also visited Afghanistan. Nation Security Advisor M.K. Narayanan and A. Rehman Khan, Deputy Chairman, Rajya Sabha, also visited in the same year of 2007.

While from the Afghanistan side, Yunus Qanooni, Interior Minister; Mirwais Sadiq, Minister of Labour and Communication; and Abdullah Abullah, Foreign Minister, paid state visits to India in the same year in 2001. Besides, visits of Mohd. Arif Noorzai, Minister of Light Industry; the then Afghan Minister of Civil Aviation, General Dostum; Deputy Defence Minister, Seyyed Hussain Anwari; Zalmay Rasool, Minister of Civil Aviation; Defence Minister, Marshal Fahim; Finance Minister, Arsala; Educatin Minister, Rasool Amin; Justice Minister, Karimi; Foreign Minister, Abdullah Abdullah; Commerce Minister, Sayed Mustafa Kazmi; and Education Minister, Yunus Qanooni, took place in year of 2002. These frequent visits show the goodwill gesture of Afghan leadership towards India.

In the year of 2003, Communication Minister, Mohammad Masoom Stanekzai; Transport Minister, Seyed Ali Javed; and Minister of Civil Aviation, Mirwais Sadiq were on the top of visitors list to India. These courtesy visits remained continue in the year to come as Foreign Minister Abdullah Abdullah visited again in 2004. Zalmay Rassoul, National Security Advisor to Afghanistan Government visited India in 2005. Minister of Parliamentary Affairs Farooq Wardak and Foreign Minister Rangin Dadfar Spanta visited India in 2006.

3.4.3. Financial Aid and Assistance

India has provided US $ 2 billion, approximately, as an economic aid and assistance to Afghanistan in these years. Besides, it has already invested US$ 10.8 billion in Afghanistan’s infrastructural projects as of 2012. For a country like India, this is a significant contribution despite economic crunch. India’s support and collaboration extends to the rebuilding of air links, power plants, health, education and transport. It is also providing training to civil servants, diplomats, police and giving scholarships to students.

India has established Indian Medical Missions in four major cities i.e. Kabul, Mazar-e-Sharif, Kandahar and Herat for the free medical service and medicines. Gifting of ambulances, voltage stabilizer, heating and plumbing systems and setting up of the maternity ward were the other initiatives taken in this regard.

India also made arrangements for the distribution of 1 million MT of wheat’s high energy Biscuits in 2 million school children across Afghanistan daily. Besides, wheat was also supplied for production in agriculture sector. 614 agriculture scholarships in the disciplines of B.Sc, M.Sc and Ph.D have been distributed under the ICAR scheme till now. India also agreed for setting up a National Agriculture University at Kabul, recently. A ‘task force’ has already been appointed under the leadership of leading agriculture scientist MS Swaminathan to explore this project. It is likely to start functioning very soon.

In education sector, India reconstructed and renovated the ‘ Habibia’ school in Kabul. A computer laboratory is also established there recently. India also awarded 500 scholarships and training slots each to the Afghan students annually under the ICCR and ITEC projects during these years. India is also collaborated in settings up of India-Afghanistan vocational training centre for training the 3,000 students in the trades of carpentry, plumbing, welding, masonry and tailoring. Indian NGO has established Women’s Vocational Training Centre in Bagh-e-Zanana for training of 1000 women in the areas of garment making, nursery plantation, and food processing and marketing. 30 Indian Civil Servants were deputed in Afghanistan government institutions for the training and developmental activities. Jawaharlal Nehru Chair of Indian Studies at Kabul University is also established in these days.

During the visit of Indian Prime Minister, Manmohan Singh, in 2011, 1000 buses were donated to Afghanistan for smooth transport facilities in Kabul and other municipalities. It also gave 500 tractors for the Afghan farmers.

3.4.4. Development of Various Projects

India has taken a number of medium and large infrastructure projects in Afghanistan. The Indian army border roads organisation constructed a land road in the north-west region connecting the city of Delaram to Zarang in 2009. It has provided Afghanistan a direct access to the Iranian port of Chabahar. It will reduce the Afghanistan’s sea route dependence on Pakistan.

India also constructed 22okv DC transmission line from Pul-e-Khumri to Kabul for hurdle free supply of electricity. It also established a 220/110/20 kv sub-stations at Chimtala, Doshi and Charikar. India’s role in construction of Salma Dam in Herat and Afghanistan Parliament and Indira Gandhi Hospital in Kabul showed the real involvement in Afghanistan and greatly praised by all section of society there. India also expanded national TV network by providing an uplink from Kabul and downlinks in all 34 provincial capitals. Besides, India also engaged in fostering community-based ‘Small Development Projects’ in vulnerable border areas, in the fields of agriculture, rural development, education, health and vocational training etc. with the total cost of approximately US$ 19,785,706 till 2008.

3.4.5. Trade

India’s trade with Afghanistan in 2006-07 was of $216 million. It showed some growth in the years to come. It reached at US$ 588 million in the financial year of 2012-13. It showed further growth in the next financial years also. Total trade reached at the value of US$ 684 million in the year of 2014-15. India is one of the major export destinations of Afghanistan’s goods, although it is very modest figure in volume. It is considered that with the opening of the Chabahar port in Iran, Afghanistan’s trade could make steady growth with outside world, particularly with India. India already constructed road in interior Afghanistan to get linked with this port.

3.4.6. Some Other Initiatives

India proposed Afghanistan’s membership in SAARC in 2005 and finally included as the eighth member of SAFTA and SAARC in 2007 during New Delhi Summit.

Afghanistan will receive the benefit of zero import duty on its export to India and get linked with other South Asian Countries also.

India had signed a strategic partnership agreement in 2011 with Afghanistan and formalized a framework for cooperation in areas of political & security cooperation; trade & economic cooperation; capacity development and education; and social, cultural, civil society & people to people relations. It gave a major boost in their bilateral relations. India will provide assistance in rebuilding Afghanistan’s infrastructure and institutions, encouraging investment in natural resources, and support for an Afghanistan-led, Afghanistan-owned, broad-based and inclusive process of peace and reconciliation. Indian private sector, thus, has been investing in the Hijigak iron ore reserves for the long-term investment and sustainable development. Besides, a steel plant by SAIL, and an 800 MW power plant are likely to be completed very soon there.

India hosted the ‘Delhi Investment Summit on Afghanistan’ in June 2012 to forge cross-country partnerships for investment there. Around 350 delegates from India, China, Iran, Pakistan and Afghanistan participated in this event. It was the pioneer effort done by India in promoting direct investment in this economically starved state of Afghanistan. India also hosted Senior Officials Meetings of the ‘Heart of Asia Countries’ in New Delhi in January 2014 for the promotion of trade, commerce and investment process in Afghanistan.

With the change of regime in Kabul, the new President Ashraf Ghani sought to realign their relations with its neighbours. His changed stance towards Pakistan and China raised some serious questions regarding India’s position and added worries to its positive gesture. Although, the visit of President Ashraf Ghani in April 2015, and his open criticism of Pakistan’s hostile policy towards Afghanistan recently has brought some sight of relief in Indian camp. In this visit, Indian Prime Minister Narender Modi reiterated India’s commitment to strengthening bilateral relations with Afghanistan. India also delivered three advanced country-build ‘Cheetal’ helicopters desperately needed by Afghan National Army (ANA).

4. Conclusion

India’s interests in Afghanistan are linked with peace and stability there. If Afghanistan has a broad based functional government and ethnic harmony in demographic setup that serves at a great level to Indian objectives. The success achieved during the past few years in the growth of bilateral cooperation is ample proof of it. But India could not take it as a guarantee due to flexibility and fluidity in the nature of Afghanistan scenario. The resurgence of Taliban and the continuing and deepening political instability there are worrisome for India. The recent terrorist attacks on Indian embassy and workers may justify India’s stand on terrorism. Terrorism across the border remains its main concern. It adds the burden in its policy orientation towards Afghanistan. India’s basic thrust towards this region should be one of positive engagements as the relaxation of tension in the post-Taliban period is likely to provide more opportunity for strengthening of bilateral ties in a constructive manner. India should realize that stability can result in Afghanistan only if all the major actors including Pakistan have a stake in its stability, growth and prosperity. Hence, India should favorably respond to initiatives to evolve any regional formation for the sake of economic and political stability there. However, the changing global and regional politics, along with the changed domestic scenario in Afghanistan, are likely to determine the future course of their relationship.

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Suggested Readings

a) Books/Articles

Afghanistan: India’s Strategic Stakes, Centre for Joint Warfare Studies, New Delhi, Har-Anand, 2010.
Ashok Kumar Attri, India and Central Asian Republics, New Delhi, Regal, 2010.
B.G. Gafurov, Dialogue of Culture and Civilizations, Moscow: Embassies of India and Tajikistan in Russian Fedration, 2000.
K. Warikoo, Ethnicity and Politics in Central Asia, New Delhi, South Asian Publishers, 1992.
—————-, Central Asia, New Delhi, Har-Anand, 1995.
Afghanistan Factor in Central and South Asian Politics, Occasional Papers I, New Delhi, Trans Asia Informatics, 2001.
Rashid Ahmed, The Resurgency of Central Asia: Islam or Nationalism, London, Zed Books, 1994.
Riyaz Punjabi and Others ed., India and Islamic World, New Delhi, Radient Publishers, 1998.
R.S.Yadav & Suresh Dhanda, eds., India’s Foreign Policy: Contemporary Trends, New Delhi, Shipra, 2009.
R.S.Yadav, Bharat Ki Videsh Niti, New Delhi, Pearson, 2013.
Virender Gupta, Sumita Kumar & Vishal Chandra ed., India’s Neighbourhood: Challenges Ahead, New Delhi, IDSA, 2008.

b) Web Links:-