CHINA’S CABBAGE STRATEGY AND ITS IMPLICATION

OVER INDIA
PRIYAL1

INTRODUCTION

The South China Sea, an arm of western Pacific Ocean is an imperative corridor for maximum
international trade among different islands and countries worldwide. In present case, the current
subject matter of the conflict in the region is main part of outfitted clash. This clash would be
vulnerable to the worldwide trade and exchange. The conflicts among its surrounding states
which includes Brunei, Philippines, China, Taiwan, Malaysia and Vietnam started during 1970s
and turned into political war clashing to have access of rich oil and gas saves on the seabed
around the Spartley and Paracel Islands. China claimed to have complete access over the South
especially over Spartley and Paracel Islands. But struggling to attain the same, China adopted
strategic strait to gain control over the same.

The strategic strait used by the China is popularly known as “Cabbage Strategy”. This strategy is
being used by the nation to expand its maritime boundaries around South China Sea. On
considering the same, China’s Cabbage Strategy can be said as an insidious land seizing tactic
performed to strengthen its power as well as to exercise complete control over the South China
Sea. It is a Strategy where a disputed area is enclosed by multiple security layers in as a part of
claim disallowing other surrounding competing nations to avail its access. This Strategy is being
used as a tool by China against other competing neighbor nations surrounding the sea i.e.
Bhutan, Philippines, Malaysia, Brunei, Japan for great period of time in order to have complete
access over South China Sea.

INTERPRETATION OF SOUTH CHINA SEA

South China Sea is a part of Pacific Ocean covering area of 1.4 million square miles, extending
1200 nautical miles and broad up to 650 nautical miles. The sea is confined by China in north,
Indonesia, Malaysia, Brunei on south, Philippines on east and Singapore and Vietnam on west.
Its broadness reaches to Gulf of Tonkin (west) to Philippines (East) and from Taiwan Strait
(East) to Malacca Strait (West). There are approximately 250 islands, reefs, sandbars and shores
around the sea. Out of these 250 islands, Spartley and Paracel are two of the most crucial islands,
having strengthening over which, corresponds to having strength over Exclusive economic Zone
(EEZ). An Exclusive Economic Zone has been defined as, “The exclusive Economic Zone is an
area beyond and adjacent to the territorial sea, subject to specific legal regime established in
this part, under which rights and jurisdictions of coastal States and the rights and freedom of

1
Student of BBALLB, 3rd Year, ICFAI UNIVERSITY, DEHRADUN.
other States are governed by the relevant provisions of this Convention.”2 But over decades, the
construction of artificial islands over the sea has changed its topography.

Spartley Islands: Spartley archipelago is one of the main archipelago lies on the east of
southern Vietnam, north of Brunei and west to the Philippines having 140 small islands, reefs
and shakes. Taiping Island is main island of it having own airbase, water asset and battalions.
Also this island is near to the military faculty of most of the disputed nations.

Paracel Island: This archipelago, being the second most large gathering of islands lies on north
of Spartley islands, west of Philippines and east of Vietnam. This archipelago has total of 45
isles, rocks, reefs and other constructions made by the surrounding states. Out of these 45 isles,
Woody island of it, popularly known as Sasha City has ocean port, military airplane terminal
mail station developed by Chinese.

South China Sea for International Trade

The South China Sea is a hub of world’s biological system. It is an imperative path for
international trade. As per the U.S EIA, “South China Sea is a great source of Raw Materials
such as Natural Gas and Oil. Over 33% of complete world’s marine biodiversity exists in South
China Sea. Over 90% of the International trade and 45% of the sea transportation is done from
South China Sea making it universal international trade path.”3 Strait of Malacca along with
Sunda Strait and Lombok Strait is greatest pathway of transportation worldwide. In relevance to
the above reasons, if any conflict arises with same, would roughly affect the worldwide trade and
exchange.

WHAT IS SOUTH CHINA SEA DISPUTE ?

South China Sea dispute is a matter of territorial claim made by the surrounding nations. The
Spartley and Paracel archipelago were great part of this controversial dispute. These archipelago
being an aggregate of battalions, little airbase as well as no. of isles, rocks and reefs is a matter of
the conflicts among China and its other rival nations. After World War II, None of the
surrounding countries had control over the islands of the South China Sea. However, after China
Civil War, when the states started claiming on its islands, the Spartley Islands is claimed by
China, Philippines, Vietnam and Taiwan and Brunei whereas the Paracel Islands is claimed by
China, Vietnam and Taiwan. The claim of China over islands of South China Sea is an old
2
Hong. N, UNCLOS and ocean dispute settlement 23, 2014

3
Khan Asif & Ullah Maseeh. South China Sea Dispute Under Law of Sea, 10.2139, SSRN.1, 7 (2018),
https://www.google.com/url?
sa=t&source=web&rct=j&url=https://www.researchgate.net/publication/327564800_South_China_Sea_Dispute_Un
der_Law_of_Sea&ved=2ahUKEwiF_Zasn4fxAhWG8XMBHUHhBuUQFjABegQIFhAC&usg=AOvVaw3oFIU9Yt
tDQD_Sf9jWlViy
matter. The nation claims huge part of South China Sea. In 1876, it made its first official claim
over Paracel Islands. Around 1947, the nation isolated its claim with U- shaped Line with eleven
dashes out of which two dashes around d Gulf of Tonkin got eliminated and consequently nine-
dash line became part of conjuncture. The Nine-Dash Line is an extent of Chinese Claim in the
South China Sea. This Nine- Dash line is questionable aspect on the basis of its legality.
However, it was held illegal because it endangers the sovereignty of various states with exclusive
economic zone in the South China Sea. 4This Nine- Dash Line’s claim of China was held
unlawful on the grounds of UNCLOS provisions which states as follows:

“1. In the Exclusive Economic Zone, the Costal State has:

a. Sovereign rights for the purpose of exploring and exploiting, conserving and managing
the natural resources, whether living or non living, for waters super adjacent to the sea
bed and of the seabed and its subsoil, and with regard to the other activities for the
economic exploitation and exploration of the zone, such as the production of the energy
from the water, currents and winds;
b. Jurisdiction as provided for in the relevant provisions of this convention with regard to:
(i) The establishment and use of artificial islands, installation and structures;
(ii) Marine scientific research
(iii) The protection and preservation of the marine environment;
c. Other rights and duties provided under this Convention.
2. In exercising its rights and performing its duties under this Convention in the exclusive
economic zone, the coastal states shall have due regard to the right and duties of other
states and shall act in manner compatible with the provisions of this Convention.
3. The rights set out in this article with respect to the seabed and subsoil shall be exercised
in accordance with Part IV.”5

CHINA CABBAGE STRATEGY AS A PART OF SOUTH CHINA SEA DISPUTE

“Cabbage Strategy” is also termed as “Salami Slicing” strategy where a disputed area is
enclosed by multiple security layers so as to avoid the competing nations to have access over the
same and their claims subsequently. Under this Strategy, Chinese Navy surround the disputed
island with large navy ships to restrict access by another country, including the one to which
officially belong. China has been using this strategy for a long period to expand its maritime
boundaries against its rival nations like Bhutan, Japan, Philippines, Malaysia, Vietnam, Brunei as
well as India. Since, South China Sea Dispute is a decade old matter. Starting in 1970s, China
ensured to gain complete control over the islands in Nine – Dash line, as a part of Cabbage
Strategy. It is a militarily swarming of seizing control of islands. Whenever there is a conflicted
4
Drishti, https://www.drishtiias.com, (last visited June 5, (2021)
5
UNCLOS treaty, Dec. 10,1982, art.56
islands, there are military and paramilitary forces are sent to seize the Island with military ships,
fishing boats.
An international arbitration matter between Philippines and China, being a part of the dispute,
was first time initiated in 2013 where Philippines officially instituted, an arbitral proceedings
against China under Annex VII of UNCLOS, 1982 for performing cabbage Strategy. China used
to construct artificial islands in South China Sea and militarized them as a part of cabbage
strategy. The dispute between the two nations aroused over the construction of apparent airbase
by the china on artificial islands. In 2018, Philippines opposed the construction of this air base in
the South China Sea.6

In 2016, the Hague-based Permanent Court of Arbitration ruled that China’s claim over the
South China Sea has no legal basis and its claim over the resources is irreconcilable with
provision of Exclusive Economic Zone under Part V of UNCLOS, 1982.

1. In the exclusive economic zone, all States, whether coastal or land-locked, enjoy, subject
to the relevant provisions of this Convention, with freedom referred under article 87of
navigation and overflight and of the laying of the submarines, cable and pipelines and
other internationally lawful uses of the sea related to these freedoms, such as those
associated with the operation of ships, aircrafts and submarine, cable and pipelines, and
compatible with other provisions of this Convention.
2. Article 88 to 115 and other pertinent rules of international law applies to the exclusive
economic zone in so far as they are incompatible with this part.
3. In exercising their rights and performing their duties under this Convention in the
exclusive economic zone, States shall have due regard to the rights and duties of the
coastal states and shall comply with the laws and regulations adopted by coastal states
in accordance with the provision of this Convention and other rules of international law
in so far as they are not incompatible with this part.”7

The Permanent Court of Arbitration further concluded that China has violated the Philippines’
sovereign rights under Article 55(1) of UNCLOS and also caused severe harm to the coral reef
environment by building artificial islands in the region. However, the ruling was disregarded by
China.

6
Sharma Divyanshi, South China Sea Dispute, Legal Services India( Oct. 20, 2020) https://www.google.com/url?
sa=t&source=web&rct=j&url=http://www.legalserviceindia.com/legal/article-3913-south-china-sea-
dispute.html&ved=2ahUKEwjbivbEn4fxAhV0IbcAHVyhA8UQFjAOegQIEBAC&usg=AOvVaw3X7wDXiu1u6zt
aSmWXroQH&cshid=1623128186154
7
UNCLOS treaty, Dec. 10,1982, art.58
IMPORTANCE OF SOUTH CHINA SEA FOR INDIA

India is a stakeholder of South China Sea. According to the U.S EIA, “South China Sea is a
great source of Raw Materials such as Natural Gas and Oil. Over 33% of complete world’s
marine biodiversity exists in South China Sea. Over 90% of the International trade and 45% of
the sea transportation is done from South China Sea making it universal international trade
path.” The region is crucial source to India for its developing energy needs. Approximately,
$200 billion worth of Indian Trade passes through the South China Sea. Due to this reason, this
region is of high strategic need for India. With respect to The Hague Verdict, India took principle
stand to have freedom of navigation and commercial access as UNCLOS defines. As per the
laws of UNCLOS, 1982, the convention, under article 17 states, “Subject to this convention,
ships of all States, whether coastal or land locked, enjoy right to innocent passage through
territorial sea”8The Convention further expresses law under Art 18 for freedom of High Seas as
per which:

1. “The high seas are open to all the States, whether coastal or land locked Freedom of
High Seas is exercised under the conditions laid down by this Convention and by other
rules of international law. It comprises, inter alia, both coastal and land locked States.
(a) Freedom of Navigation;
(b) Freedom of Overflight;
(c) Freedom to lay submarines cables and pipelines, subject to part IV;
(d) Freedom to construct artificial islands and other installations permitted under
international law part VI;
(e) Freedom of fishing, subject to conditions laid down in sec 2;
(f) Freedom of scientific research, subjects to part VI and VIII.
2. These freedom shall be exercised by all the States with due regard for the interest of
other States in their exercise in freedom of the high seas and also with due regards for
the rights under this convention with respect to activities in the Area.”9

India, being landlocked State, have interest in the South China Sea which is bifurcated in three
parts i.e. geoeconomic, geopolitical and geostrategic scope. Under all the three scopes there are
certain questions needed to be answered.

Geoeconomic Scope:
55% of India’s trade with the rest of the world passes through the Strait of Malacca and South
China Sea. How important is freedom of navigation through the SCS for Indian trade and global
trade at large? What would be the consequences of a economic conflict or disruption of sea-lanes
in the SCS? Can modifying global maritime trade routes, influence the importance of the SCS?

8
UNCLOS treaty, Dec. 10,1982, art.17
9
UNCLOS treaty, Dec. 10,1982, art.18
Will India’s reliance on economic trade through the SCS decrease or increase in the estimated
future? What is our economic relationship with claimants to the SCS region?

Geopolitical Scope:
What repercussions would Chinese dominance in the SCS have in the Indian Ocean? Can
India’s relations with China with respect to the South China Sea region be analyzed in a vacuum
or does it necessarily influence and is influenced by developments in other parameters of the
relationship? What lessons can India draw from Chinese aggressiveness and threat of use of
force in its approach towards maritime disputes in the SCS when evaluating our own border
disputes with China?
What are the expectations of ASEAN over India as a non-littoral country in that area? What are
the basic principles governing India’s relationships with ASEAN as a whole and its individual
states?
Should India take on greater responsibilities in order to increase its prestige and power?
Geostrategic Scope
What is the importance of the South China Sea to India’s energy security with respect to
overseas acquisitions of hydrocarbons and its access to energy supplies from various other
States?
The Look East policy has been one of the supporting masts of Indian foreign policy in the prior
decades. Is our Look East policy related to the SCS? How is SCS’s involvement an extension of
Look East?
Since 2000, there has been a drastic increase in India’s ‘military diplomacy’. What is the naval
aspect of India's 'look East' policy? What are its objectives? Is Indian Navy relatively stronger
compared to that of PLA Navy?
The “Look East” policy of India has strengthened its relations with several ASEAN Countries in
both economical and military terms. There has also been a high increase in Indian naval activity
over those waters. Despite of such developments, India seems to lack in defined strategic
direction. In most of the cases, India response is in an ad-hoc manner, reacting to Chinese
concerns, actions and provocations etc. Therefore India announced an opening of full-fledged
mission to the ASEAN.

The SCSea is a part of India’s “extended neighbourhood” to a great extent. It is of critical

geostrategic, geopolitical, and geoeconomic importance and has a direct impact on the relations
with many strategic countries which have similar influence on the SCS. As per the current
geopolitical realities, India offers room for manoeuvre in the Indo-Pacific region, the challenges
and the solutions that, in the absence of the exact definition of the foreign policy priorities in the
region.

This is a region that is very important to India's growing energy needs. In 2006, ONGC Videsh,
an Indian oil firm, was awarded a Production Sharing Contract (PSC) for the exploration of the
Block, 128 to oil fields in the socialist republic of Vietnam. However, China’s claim over the
region will prove detrimental to India’s interests since the block falls within the 9 dash line. As
per an estimate, the worth of trade passes through the region is roughly over USD 5 trillion in a
year. Over the past few years, there has been a steady increase in India’s trade through the
Malacca Strait and the South China Sea. This has been possible due to the growing trade
relations with Indonesia, Singapore, Japan, Malaysia, Australia, the USA, and South Korea. With
the signing of the Regional Comprehensive Economic Partnership (RCEP) with the ASEAN+
nations, the trade volume is expected to go up. It is essential that the international waters in the
particular area are free of conflict in order to sustain the 2-way trade. Of course, the sea has a
new opportunity for economic development. In order to use the natural resources offered by the
South China Sea in a fair, equitable and sustainable manner, it is essential that no country solely
claims the resources of this region.10
Aside from the above mentioned economic and commerce significances, the South China Sea is
very essential from a strategic standpoint. In prolongation of the Look East Policy of the PV
Narasimha Rao Government, Prime Minister Narendra Modi has unveiled a new policy, Act East
Policy. The Act East policy predicts accelerated extensive engagement between the two growth
poles, ASEAN countries and India. An uninterrupted connectivity is essential to sustain the
centuries-old historical, cultural and trade links with the ASEAN. The increase in military
presence of China in the SCS presents a threat to the successful implementation of the Act East
Policy. 11

IMPLICATIONS OF CABBAGE STRATEGY OVER INDIA

The Involvement of India in South China Sea dispute has been observed as ‘Offensive-Defence
Strategy’ in foreign policy. The SCS is of national interest for India. Hence, there are legitimate
security concerns with China in many areas of life- both in trade and in commercial litigation,
cross-border basis, strategic, Chinese offensive postures has menacingly threatened India’s
national interests. China has long pursued such an "offensive-defensive" approaches to India, and
with the help of its "string of pearls", the "one belt, one Road" policy, and the development of the
China-Pakistan Economic Corridor, and to increase its presence in the Indian Ocean region,
India has so far been unwilling to deal with these challenges. Just recently, India decided to act
as a "game-changer" by the adoption of a "defense strategy" for the attack, and also to counter
China and became involved in a dispute over the SCS. The interaction of China are embroiled in
10
Roy Shoikat, The Broad Mind | Understanding India’s Role in the South China Sea, Takshashila Institution(June
6,2020, 03:15 PM) .
https://www.google.com/url?sa=t&source=web&rct=j&url=https://takshashila.org.in/the-broad-mind-
understanding-indias-role-in-the-south-china-
sea/&ved=2ahUKEwig1NmEoYfxAhVz6nMBHXvkBzYQFjAAegQIAxAC&usg=AOvVaw0OKnDGgDxBeyay5N
cfa5w-

11
Kim Jihyun, Territorial disputes in South China sea: Implications for security in Asia and beyond, 9 JSTOR.107,
131(2015)
https://www.google.com/url?sa=t&source=web&rct=j&url=https://www.civilserviceindia.com/current-
affairs/articles/india-and-south-china-sea-
dispute.html&ved=2ahUKEwiGwbCVkofxAhXEwzgGHUkPAaIQFjABegQIExAC&usg=AOvVaw3Ya1IPibW2pZ
gbOdk2hNV5
a dispute over the south china Sea. India is not a direct party to the dispute in the South China
Sea, and it may be in their best interests to have good relations with both China and the ASEAN
countries. At present, the government of India's official position is that the South China Sea
dispute should not be "internationalized" and all interested parties should be resolved, including
the bilateral level. However, both in the financial, maritime, and strategic interests, protection of
the freedom of movement for the navigation of the South China Sea. This allows India to
mediate in the disputes in the south china Sea. As it has been in the South China Sea, and a large
proportion of the world's trade passes through the strait of Malacca to the South China Sea. 55%
of the trade of India, passing through the Strait of Malacca, which, as it turns out, is the in the
South China Sea. If China controls the region, in the country's global trade and India is going to
be directly affected. Everyone is in China, could be the foreign trade of India is carried out
through the region. Therefore, India is interested in ensuring freedom of navigation in the region.
If China succeeds in gaining control of the sea lanes, India will lose out on an international trade
route, or as a share of China, in addition to it support. India does not want that to happen, and
are, therefore, obliged to intervene in the south china Sea dispute, in order to protect their
financial interests of the union. India has a legitimate strategic interests, as to any military
conflict in the south china Sea, in order to diversify into the Indian Ocean. This may deteriorate
the regional situation, and in this case, India's relations with the countries of south-east Asia, can
be subject to interference. Therefore, the South China Sea is very important for India, and, from
a strategic point of view.

CONCLUSION
It is high time for China to comply with international laws and to the rights of its maritime
neighbors. The major challenges for the Indian Policy is to protect the country's interests in the
South China Sea, and to break his heart, and relations with China.