IK Gujral’s death anniversary: What was the Gujral Doctrine of foreign policy, its significance (2024)

What is the Gujral Doctrine?

Before becoming the Prime Minister, Gujral had held several Cabinet positions, including the External Affairs Minister portfolio twice. While both stints were short — under VP Singh from December 5, 1989 to December 19, 1990 and under HD Devegowda from June 1, 1996 to April 21, 1997 — they were significant.

It was during his second tenure as EAM that Gujral delineated his approach towards India’s neighbours, which later came to be known as the Gujral Doctrine. This consisted of five basic principles, as outlined by Gujral at a speech in Chatham House in London in September 1996.

“The United Front Government’s neighbourhood policy now stands on five basic principles: First, with the neighbours like Nepal, Bangladesh, Bhutan, Maldives and Sri Lanka, India does not ask for reciprocity but gives all that it can in good faith and trust. Secondly, no South Asian country will allow its territory to be used against the interest of another country of the region. Thirdly, none will interfere in the internal affairs of another. Fourthly, all South Asian countries must respect each other’s territorial integrity and sovereignty. And finally, they will settle all their disputes through peaceful bilateral negotiations,” Gujral said.

Interestingly, Gujral named the countries from which India would not expect reciprocity, and it did not include Pakistan.

The Gujral Doctrine was based on the understanding that India’s size and population by default made it a major player in South East Asia, and its position and prestige could be better cemented by adopting a non-domineering attitude towards its smaller neighbours. It also emphasised the importance of keeping dialogue going, and avoiding needless provocations by commenting on the internal matters of other countries.

While Gujral did not name Pakistan, he did adopt the same approach towards that country to a degree. Under his tenure as EAM, India unilaterally eased travel restrictions, permitting Pakistani tourists to visit India in groups and easing travel for Pakistani businessmen to India. His attempt at keeping dialogue going with Pakistan is famous (more on that later).

This policy was formulated in the years after India’s ties with many of its neighbours, including Bangladesh, Nepal, and Sri Lanka, had hit rocky patches, making it all the more significant.

Successes of Gujral Doctrine

Gujral’s approach to foreign policy helped strengthen trust and cooperation in India’s neighbourhood. Some concrete successes from this period include, in the words of Ashok Behuria, Senior Fellow, Manohar Parrikar Institute for Defence Studies and Analyses, “Gujral’s policy of non-reciprocal accommodation led to the signing of a 30-year treaty between India and Bangladesh on December 12, 1996. In fact, the 1977 treaty on water sharing between India and Bangladesh (after extensions in 1982 and 1985) had lapsed in 1988 and negotiations could not succeed because of inflexibility on both sides. He even ensured Bhutanese consent for digging of a canal from a Bhutanese river to augment the flow of water to Ganga and showed his willingness to revise the controversial Mahakali treaty with Nepal which was received well in Nepal.”

Crucially, in the water treaty with Bangladesh, Gujral demonstrated his willingness to not expect reciprocity by delinking the issue with Bangladesh giving India access to its territory for improved links with the Northeastern states, a key demand from New Delhi.

Another key marker of the Doctrine’s success was that Gujral’s successors as PM, from Atal Bihari Vajpayee to Manmohan Singh, continued following the same approach, despite coming from different ideological camps.

With Pakistan, Gujral kept talks going. This is best encapsulated in a remark he made to his Pakistani counterpart Nawaz Sharif when the two met in Male in 1997. Quoting Urdu writer Ali Sardar Jafri, Gujral said, “Guftagu bandh na ho, baat se baat chale…(may the conversation never end, may one conversation lead to another).”

Criticism of Gujral Doctrine

Some of the successes of the Doctrine now appear limited, and Gujral has also received criticism for failing to convince the foreign affairs bureaucracy to follow the doctrine wholeheartedly.

Gujral was criticised for going too soft on Pakistan, and leaving India vulnerable to the threats of the future, including the many terror attacks.

In sections within Pakistan, meanwhile, the Doctrine was seen as India’s attempt to cosy up to other neighbours and isolate Islamabad.

How Gujral made the Gujral Doctrine possible

For better context on the Gujral Doctrine, it is necessary to know a bit about the man behind it. Gujral was born in Jhelum in undivided Punjab, and came to India after the Partition. The son of freedom fighters, he had been imprisoned himself during the freedom struggle. His long years in politics had been marked by unfailing politeness and courtesy, but he was known to put his foot down, quite firmly, when required.

When the Emergency was imposed, Gujral was Information Minister. He is reported to have said no to Sanjay Gandhi’s orders for stifling the press, and was promptly replaced.

In the arena of international relations, Gujral is known for a comment he made about Britain. As Mark Tully wrote for The Guardian, “On a visit to Pakistan, just before visiting India, the British foreign minister, Robin Cook, suggested that Britain might mediate between India and Pakistan over Kashmir. When questioned about this by Egyptian intellectuals, Gujral described Britain as “a third-rate power nursing delusions of the grandeur of its past.”

An apt comment on Gujral and his Doctrine was made by Pakistani academic and politician FS Aijazuddin after the former Indian PM passed away. Writing in Dawn about what he would have said at Gujral’s cremation, Aijazuddin commented, “I would have chosen this line from the Bhagavad Gita: “The destruction of our kindred means the destruction of the traditions of our ancient lineage and when these are lost, irreligion will overrun our homes.” It reads like the Gujral Doctrine in Sanskrit.”