Professional Documents
Culture Documents
Smruti S. Pattanaik1
Abstract
Bay of Bengal and Andaman Sea (BoBAS) constitutes a single economically inte-
grated region. Though for the strategic purpose, India looks at Bay of Bengal
(BoB) separated from the Andaman Sea (AS). Since 2000, India has been mak-
ing an effort to integrate its north-eastern region to the vibrant economies in
Southeast Asia. In this context, BoBAS becomes significant to emerge as an eco-
nomically integrated region that has the potential for growth. Most of the coun-
tries, except for Myanmar, have witnessed 6–8 per cent growth for the past 10
years. They face similar maritime security threats, issues of terrorism and drug
trafficking. Over the past few years, the countries of the region have invested on
establishing connectivity network and are ready to cooperate on blue economy
as a part of sustainable development. Several bilateral and multilateral coopera-
tions that exist suggests that the region will emerge as an integrated economic
and security zone in the future.
Keywords
Cooperation, connectivity, maritime, security, subregionalism, Bay of Bengal,
Andaman Sea, Indian Ocean, energy cooperation
1
Institute Defence Studies and Analyses (IDSA), New Delhi, India.
Corresponding author:
Smruti S. Pattanaik, Institute Defence Studies and Analyses (IDSA), Development Enclave (near USI),
Rao Tula Ram Marg, New Delhi 110010, India.
E-mail: smrutispattanaik@gmail.com
Pattanaik 85
Introduction
Regionalism and regional economic cooperation have assumed greater signifi-
cance in recent years as most of the countries see themselves as vehicle of growth
for their developing economies. Economic integration and especially connectiv-
ity, which has emerged as a major driver of cooperation, are no longer examined
through the prism of sovereignty and nationalistic politics. Connectivity and tran-
sit have become new keywords of cooperation. While South Asia Association for
Regional Cooperation (SAARC) has received much attention of the policymakers
as a vehicle of regional cooperation, the countries of the region are yet to look
towards sea to explore new avenues of economic cooperation which is compara-
tively cheaper for moving goods and has less environmental impact when com-
pared to vehicular traffic movement. In this context, Bay of Bengal and Andaman
Sea (BoBAS) are relatively new areas of focus for India and other countries of the
region. Exploration of marine resources for development, blue water economy,
cooperation to enhance maritime security, etc. are some of the issues that are now
finding place in the joint statements as major policy objectives among govern-
ments. These spurts in the statements on maritime matters reveal that increasingly
the countries of the region are getting focused on maritime domain for their eco-
nomic development and to address emerging security issues. Organisations like
the Indian Ocean Rim Countries Association (IORA) and Bay of Bengal Initiative
for Multi-Sectoral Technical Economic Cooperation (BIMSTEC) have focused
on the Indian Ocean and Bay of Bengal (BoB), respectively. While BoB has
received larger attention, Andaman Sea (AS) did not get the focus it deserved after
India’s independence. As is mostly seen as a connector between the Bay and
Southeast Asian countries with which there was flourishing trade in the past. The
establishment of a tri-service command in Andaman is significant. Indian Navy is
now given the charge of this command.
For India, AS is strategically significant as it is adjacent to the BoB and con-
nects Indian Ocean to what is known as ‘Indo Pacific’ which has now emerged as
an intense region of competition between regional and global rivals, that is, China,
India, Australia and the USA; vying for dominance of this vital geo-strategic
region. The crucial factor is this part of the Indian Ocean is an important sea lanes
of communication (SLOC) vital to the energy security that fuels the growth engine
of many of the countries in the region. Therefore, protection of the SLOC is cru-
cial and none of the countries want it to be choked during conflict which would
impinge on security and survivability of these countries. At one point of time,
keeping this in mind, India had proposed declaring the Indian Ocean as a zone of
the peace to keep the region secure from the super power rivalry during the Cold
War period. BoB and AS are the subregions of larger Indian Ocean region,
although these two regions are being treated as a singular subregion taking into
account their economic and strategic potential which means they cannot be treated
as separate entity. The BoB includes countries such as India, Bangladesh,
Myanmar, Thailand and Sri Lanka and the AS includes countries like Indonesia
and Malaysia. In May 2018, India and Indonesia agreed to set up a special task
force to enhance connectivity between the strategic Andaman and Nicobar Islands
86 South Asian Survey 25(1&2)
and provinces in Sumatera Island. Sunil S. Amrith in his seminal work on the
region succinctly describes the importance that the BoBAS had once occupied.
The rich past of the region does not logically progress to a rich future. He writes,
The fragmentation is rapid, because however closely linked the Bay of Bengal’s
coasts—by kinship, by commerce, by cultural circulation—there was never a corre-
sponding political structure to encompass the sea. Not even the British imperial frame
could hold the Bay together. The region was governed. Bay did not emerge as a mean-
ingful unit for the planned economic development and social mobilization that held
such promise for many in mid-twentieth-century Asia. (Amrith, 2013, p. 3)
Research Objectives
This article focuses on why the economic potential of BoBAS region has not
received the attention it deserved from the policymakers? It also looks into BoBAS
as strategic space which even though constitute a part of Indian Ocean, has emerged
as a unique subregion that would require focused study. It analyses the importance
of the region in terms of its strategic significance which would require larger atten-
tion of the states as well as its potential as a harbinger of economic prosperity. This
article focuses on how India looks at this region from economic and strategic point
of view, how important is the region in the context of its Indian Ocean strategy?
It examines the current connectivity projects that provide an insight into the region
potential to emerge as an economic hub and growth corridor, the energy coopera-
tion that exists among these countries, the maritime security synergy that would
provide them with an opportunity to interlock economic and security interests and
analyse how coastal shipping, blue water economy and exploring marine resources
and anti-piracy operation are increasingly binding these countries by creating
regional network that can be termed as security community.
This article argues that this is the region where economic cooperation is
likely to move faster as compared to the other competing regional cooperation
organisation like SAARC or BIMSTEC. Here BoBAS is seen in the context of
subregional cooperation that will contribute to the larger regional cooperation
architecture that already exists and also includes countries that are not part of
these two organisations.
strengthening of India’s Andaman and Nicobar Command, this region has emerged
important from India’s maritime security perspective. Thailand shares maritime
boundary with India in the AS. With China’s announcement of Maritime Silk
Route and its close defence cooperation especially with Thailand, Bangladesh and
Myanmar, BoB has emerged as an area of strategic concerns for India. However,
in recent past, India has been able to develop close ties with Bangladesh and
Myanmar and is engaged in cooperating with these two countries on various non-
traditional security issues. It is also engaged in building the capacity of the armed
forces and engaged in joint exercise that will enhance interoperability among the
navies of this region to meet the emerging security challenges especially in the
sphere of humanitarian assistance and disaster relief (HADR).
India’s Look East policy cannot be optimised without linking the economies of
the countries surrounding the BoB into a close-knit network of economic and
security connectivity. The maritime dimension of India’s Look East policy cannot
be ignored. Historically, India had flourishing trading relations with the Southeast
Asian countries selling silks and spices. Indian cultural influences are very much
visible in the architecture and culture of the Southeast Asian countries. Sailors
from Odisha, Bengal and other coastal regions often used to sail to these areas
carrying Indian spice, textiles and semiprecious stones. These maritime trades
also transported religion and culture especially Buddhism to that region (Patnaik,
2015). Therefore, not just cultural connectivity, but reviving old trade links is
important for India to showcase the traditional links and explore the economic
potential of trade that once existed. Many of the kingdoms that existed in Southeast
Asia were ‘culturally Indianised’ as David Brewster argues in one of his articles
(Brewster, 2015). Sushma Swaraj, India’s Foreign Minister said, ‘These are
important markers in our engagement with Southeast Asia, in enhancing our stra-
tegic ties with ASEAN across 3Cs. These 3Cs are commerce, connectivity and
culture’ (PTI, 2018).
The BoB remained a largely neglected area as India soon after its independ-
ence married to the idea of land-based defence plan that gave the Army a premium
position in country’s security. Even, after the Royal Navy withdrew from the
Indian Ocean, Indian had no inclination to fill that strategic vacuum but interest-
ingly at the same time New Delhi was concerned about the Cold War conflict
expanding to the region it considered as its strategic backyard (Pattanaik, 2016).
However, the maritime focus developed in the late 1960s and the sailing of USS
Enterprise to the Indian Ocean during the 1971 war made India aware of the stra-
tegic bearing such development can have on its security. In this context, strength-
ening naval presence in the BoB and AS became an imperative. Since then, India
has steadfastly built its Andaman and Nicobar Command to protect its eastern
seaboard. China’s forays into the region and its access to BoB are likely to have
larger strategic implications. The location of the Bay that deeply undercuts India’s
eastern landscape makes it strategic vulnerable. Coupled with this is the Siliguri
corridor that is known as chicken’s neck makes it vulnerable to Chinese threat.
China’s strategic presence in the Coco Island and its larger engagement in
Myanmar where it is building ports, airports and investing in energy sector make
this region significant. China is already building a deep sea Kyauk Pyu port
although at a much lesser scale than it was originally planned (Emont & Myo,
2008). The port in which China has 70 per cent stake is a part of the Belt and Road
Initiative (Emont & Myo, 2008). China is keen to connect its eastern provinces to
the nearest seaport as a part of its peripheral strategy (Swaine, 2013). It has already
invested US$1.5 billion in oil pipeline which is 870 kilometres and a parallel natu-
ral gas pipeline that goes to Kunming in Yunnan Province. However, there is a
larger debate about whether China’s foray into the BoB has altruistic economic
motive or it has strategic implications. There were reports in the past that China
was upgrading communication facilities in the Coco Island. China’s presence as it
has officially projected is to secure the SLOC that constitute crucial lifeline for its
energy supplies. Therefore India’s Look East policy although grounded
90 South Asian Survey 25(1&2)
This was not merely an external economic policy, it was also a strategic shift in India’s
vision of the world and India’s place in the evolving global economy. Most of all it was
about reaching out to our civilizational neighbours in Southeast Asia and East Asia.
I have always viewed India’s destiny as being inter-linked with that of Asia and more
so Southeast Asia. (Press Information Bureau [PIB], 2005)
The strategic framework of India’s Look East policy lies in its engagement with
the countries of BoB and AS and further linking them up to Southeast Asia and
Indo-Pacific.
It must be mentioned that the three of the littorals of the BoB, that is, India,
Bangladesh and Myanmar have settled their maritime boundaries. Earlier Sri
Lanka and India had resolved their maritime boundaries. While the settlement of
boundaries provides a common strategic canvas where the countries can coordi-
nate their effort to deal with common security challenges, the BoB littoral coun-
tries are yet to formulate coordinated approach both in terms of exploring the blue
economy to their advantage and coordinate their navies to jointly meet security
challenges. China has emerged as an important player, which has substantial stra-
tegic interest in the BoB. Recent supply of submarines to Bangladesh has raised
certain concerns in New Delhi not so much in terms of actual threat it poses but
the access it is likely to provide to China, who while training the Bangladesh
Navy to operate the submarines will have access to the crucial BoB and can map
the ocean floor for future submarine operation. The international shipping lane
passes through the BoB and AS to connect to the Malacca Strait, which is one of
the busiest. Therefore, China’s interest in this region cannot be ignored. China
already has an access to the BoB through Myanmar.
Scientific exploration in the BoB has revealed that it is a major source of oil and
natural gas. For example, in 2013, Myanmar awarded a total of 13 international
firms to explore 10 shallow water blocks and 10 deep-water blocks (Shin, 2016;
USGS, 2016). In India the Reliance Industry has been awarded the exploration of
Krishna–Godavari basin gas block. The ONGC is exploring KG-DWN-98/2 block
in the BoB where it aims to produce 15 million standard cubic metres a day of gas
and 77,000 barrels a day of oil from the block (Sundaria & Chakravarty, 2018).
Similarly Bangladesh also has the potential gas blocks within its EEZ which is
estimated at 18 blocks (Siddiqui, 2018). BoB’s strategic and economic signifi-
cance is enormous. Five countries, namely India, Bangladesh, Myanmar, Thailand
and Indonesia are considered as countries abutting the Bay. The regional political
Pattanaik 91
dynamics and rivalry between India and China who are competing for influence
over these countries determine the dynamics in the BoB region. Four issues will
be significant for this region. First, the energy dependency of the countries of the
region, second, exploring energy sources in the bay, third, cooperating in expand-
ing blue water economy and jointly exploring the marine resources and fourth,
expanding connectivity network that could bind the region together. India’s BoB
strategy is grounded on its relations with the other four countries. The signifi-
cance of BoB is not lost to India. In fact it has been trying to leverage its interest
in this region both bilaterally and multilaterally. India joined enthusiastically
when some of the countries of the BoB region decided to establish BIMSTEC that
has economic underpinning to synergise cooperation among the countries of the
region. Non-traditional security threats have also compelled the countries to col-
laborate. Some of the key issues in which countries of this region are cooperating
are discussed later. These issues have larger economic implications and are likely
to boost a mutually beneficial relationship between India and BoB and AS regions.
Main objective of the two governments is to restore the connectivity that existed
prior to the partition of the subcontinent and then further expand them to fulfil the
current need. It needs to be mentioned that before partition India’s north-eastern
region and Bangladesh were economically integrated in terms of road, rail net-
work and having access to the nearest sea port. This connectivity continued until
1965 India–Pakistan war. Post partition the states interestingly have been inward
looking. Their external policies are more gearing towards connectivity with coun-
tries outside of South Asia but not towards the previous British India that existed
as a single economically integrated region. Trade and economic integration
between the BoB littorals only got boost after the year 2000 only after the region
witnessed spectacular economic growth and political differences were ironed out
and trust gap was bridged through sustained dialogue.
India and Myanmar are cooperating in developing infrastructure that can facil-
itate trade. Until 1990s, India’s support to democratic struggle within Myanmar
had distanced it from building strong ties with the military regime. However,
Myanmar soon became the lynchpin of India’s ‘Look East policy’ initiated in
1993. Since then the two countries have agreed to Kaladan multimodal project, a
joint venture, which is scheduled to be completed after long delays. Myanmar,
India and Thailand are also jointly building the trilateral highway that would pro-
vide India connectivity to Southeast Asia and the ASEAN region with which it has
historical relations. Nitin Gadkari, Minister of Road Transport and Highways of
India emphasised this aspect when he said, ‘Next year by the end of December,
we will be in a position to get connectivity ... We are giving highest priority to this
(Indian-Myanmar-Trilateral Highway project). This will boost trade and ties
among the nations in the region’ (Rajya Sabha, 2018; The Indian Express, 2018).
India has proposed US$1 billion credit line to the ASEAN countries to build phys-
ical and digital connectivity and has planned to make US$77million development
fund to establish manufacturing hubs in Cambodia, Laos, Myanmar and Vietnam
(Balsubramanian, 2015). Interestingly, New Delhi had to convert US$40 million
as grant because this amount remained unutilised for three years after such
announcement was made. Only Vietnam was interested in digital connectivity and
Myanmar argued for better terms and conditions. The proposed credit line is also
mired in lengthy clearance process which is a major challenge to cooperation in
this region (Singh, 2018). This will help the countries of the BoBAS, some of
them are a part of ASEAN regional cooperation organisation.
Between India and Sri Lanka there is a ferry link connecting Dhanushkodi in
Tamil Nadu and Thalaimannar in Sri Lanka and a ferry service between Tuticorin
(in Tamil Nadu) and Colombo started in 2011. The proposed India–Sri Lanka high
voltage direct current (HVDC) grid interconnection project would connect
Madurai with Anuradhapur. In January 2018, the two governments inaugurated
what is called the ‘gigabit connectivity’. There are some proposals that the Asian
Development Bank (ADB) is interested to fund a bridge or an undersea tunnel to
connect Sri Lanka. India and Sri Lanka are developing the Trincomalee upper oil
tank firm along with Japan. Indian Oil Company has a joint venture with the
Lanka Oil and is already managing the lower tanks in Trincomalee. India is
94 South Asian Survey 25(1&2)
The Navy will effectively engage friendly maritime forces in the Indian Ocean Region
and beyond, through port visits, bilateral interactions, training initiatives, operational
exercises and technical support arrangements, in order to establish a cooperative frame-
work that promotes mutual understanding and enhances security and stability in the
region. (Indian Navy, 2015)
While the EEZ are covered under the UNCLOS (United Nations Convention on
Laws of Sea), high sea does not have any governance structure making it suscep-
tible to criminal activities. Larger collaboration with other countries is necessary
to contain such activities that may impinge on maritime security.
There are serious issues of arms peddling, drug and human trafficking including
the activities of sea pirates in this region. Some of the countries are already coop-
erating bilaterally to address these issues. Maritime search and rescue, addressing
the issue of maritime pollution, anti-piracy operations, hydrographic surveys, etc.
have received the attention of the coastal countries. Several bilateral agreements
are in place to combat the issue of terrorism and drug trafficking bilaterally. India
has an annual security dialogue with Nepal, close collaboration with Bhutan and
home minister level talks with Bangladesh, cooperation in addressing the issue of
insurgency with Myanmar and annual defence dialogue with Sri Lanka. It must be
noted that the countries of the BoB share porous border and have ethnic linkages
across the border. Often terrorists and insurgents cross the border to take shelter
with the help of the ethnic brethren across the border. This has created a scenario
where countries are compelled to cooperate. Moreover, the drive for economic
well-being of the people is closely inter-linked with security issues. Both in
SAARC and BIMSTEC, the convention on terrorism provides multilateral frame-
work for the countries to address the issue jointly. India and Sri Lanka collaborated
closely to meet the challenge posed by the LTTE which used Indian Ocean to
transfer arms, ammunition to fight the Sri Lankan army. India has also provided off
shore patrol vehicles (OPVs) to Sri Lanka and Bangladesh navies. For the first
time, to coordinate the security of the BIMSTEC countries, the organisation has
dialogue at the level of national security advisors. Also, for the first time the
BIMSTEC countries, except for Nepal and Thailand, participated in a joint exer-
cise held in India. It must be noted that the countries of the region have had difficult
bilateral relationship in the past that was a major hurdle for cooperation. However,
they are able to overcome those hurdles and are able to see the security concerns
are indivisible. This is due to the transnational linkages of terrorists and arms deal-
ers operating in this region which makes it difficult for a single country to confront
on its own.
96 South Asian Survey 25(1&2)
Conclusion
The BoBAS region provides opportunities for economic and security cooperation
as has been underlined in this article. The region is prone to external power inter-
vention as it is closer to the strategic choke point of Malacca Strait. The region is
strategically significant. Yet, there exist broadly good relationship among the coun-
tries of the region facilitating economic activities and security interlinkages. As
discussed, the countries are looking for robust connectivity structure and have
adopted bilateralism, subregionalism and regionalism to enhance their economic
and security interests. Energy security remains one of the prime concerns since the
countries of the region are dependent on import of oil. Blue economy has featured
in joint statements and governmental narratives as the countries are increasingly
becoming conscious of carbon sequestration, and coastal resilience and the need
for sustainable development as sea resources are not limitless. However, there are
major challenges that need to be addressed. As discussed in this article some of the
connectivity projects that have lagged behind for example: the India, Myanmar and
Thailand trilateral highway. Similarly, India’s effort for digital and physical con-
nective has faced structural problem because the Export–Import Bank does not
have any specialist dealing with digital aspect of the connectivity. Capacity of each
country in maritime domain is also not the same. However, there is a meeting of the
minds in terms of the political realisation that cooperation is the need of the hour.
Although the regional institutional mechanism that will convert the economy of
the BoBAS countries into growth zones that would emerge as integrated market is
weak, the bilateral mechanism is robust. Perhaps the regional institutional mecha-
nisms need to build from the progress made by the bilateral institutional mecha-
nisms that are in place. Cooperation continued to be piloted by governments and
there is a need to bring in non-government organisations into policy formulation
and its implementation. Blue economy remains unexplored and there is a need for
cooperation on scientific collaboration.
Growth zones are fundamental to integration. For a very long time India is
focusing on its Northeast and believes that integrating Northeast to nearest sea-
ports in the neighbouring countries is essential for the long-term growth of the
region. India is a major power of the BoBAS region. Over the period of time, it
has enhanced collaboration with the littoral states to meet common ecological and
security challenges. While it has been diligently pursuing a model of economic
development that seeks closer integration through connectivity and market, it has
been able to bring the regional countries together to meet the common challenge
of terrorism and transnational crime. Although there is a possibility that the
Pattanaik 99
Funding
The author received no financial support for the research, authorship and/or publication of
this article.
Note
1. According to Ghosh, ‘South Korean conglomerate Daewoo has made a natural gas
discovery in Block D-12 in the Bay of Bengal in Bangladesh, adjacent to Myanmar’s
Block AD 7, in a basin that is shared between Bangladesh and Myanmar’.
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