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Sub-regional Grouping in Eastern South Asia

Principles, Practice and Prognosis

Currents and Crosscurrents

by M M Rezaul Karim
ONE of the hotly debated regional issues in this part of the sub-continent at present IS the proposed sub-regional grouping of three countries and part of a country. These are composed of Nepal. Bhutan. Bangladesh and the eastern section of India. The principal purpose Is to foster all-round co-operation among the peoples of the region. The areas of co-operation nave been identified In the core economic sectors of water, energy, environment. transportation, transit. communications, tourism, trade and investment. The private sector is to play a significant role in this arrangement, specially in the matter of accelerating transition from the regime of SAPTA to SAPTA. The sub-regional co-operation is expected to promote economic growth and also equitable distribution of benefits.
In the post-Cold War era when the deadliest of enemies have closed ranks and which witnessed prolific growth of organisations designed to promote regional co-operation, people expect and do share and enjoy multi-faced benefits out of such co-operative arrangements. There could not. therefore. be much dispute of the desirability of seizing such opportunities. The founder of the BNP. Shaheed Ziaur Rahman, had a similar vision and through his initiative the present institutional framework of SAARC was created with its concomitant benefits and advantages. During the decade-long existence of SAARC considerable progress has been achieved in designated fields and promises for a lot more are in store. It is. therefore, a natural policy for the BNP to endeavour consistently to promote collective well-being of the people in the region. Its credentials for realising this objective. in principle, by all possible useful and fair means thus remain beyond reproach.
Principles
The question has been posed whether the proposed grouping or sub-grouping is in conformity with the Charter of the SAARC or whether it undermines objectives and functions of the SAARC. There exist two
almost diagonally opposed viewpoints on this moot issue. Claims and counter-claims have been preferred by both sides to the effect that Article VII of the SAARC Charter makes enabling provision or otherwise for this venture. The Article is entitled Action Committees' and reads. , "The Standing Committee may set up Action Committees comprising Member States concerned with Implementation of projects involving more than two but not all Member States ". That Is all it states.
The above provision of the SAARC Charter clearly stipulates that Its Standing Committee. which Is a permanent body composed of Foreign Secretaries of member — states, may set up "Action Committees'', which evidently become subordinate bodies receiving terms of reference and general directions from Its appointing authority of Foreign Secretaries. Functions of these Action Committees are confined merely to "implementation of projects'" and relate to more than two but not all member states. If it concerned all. it would come within the purview of the SAARC functions in general.
What is noteworthy In this respect is that it does not authorise the Action Committees to explore, plan and prepare projects for member-states and limits its activities only to implementation of such projects. The provision also does In no way provide for the creation of a high-powered or supra-national body or even one at a level higher than Secretary. So. SAARC does not envisage creation of a separate body first and then to explore for projects: rather It envisages implementation of projects that three or more member-states may have already planned or drawn up. The anomaly resembles the situation of putting the cart before the horse and not horse before
the cart.
One may. however, legitimately argue that Charter of the SAARC may be amended, If needed. One may also contend flexibility is Imperative In many situations of this nature. If It can cause greater well-being of the people But all decisions of the SAARC. not to speak of an amendment to its Charter, require unanimous consent of all members. This provision was incorporated at the behest of India. The wise founding fathers incorporated this provision with foresight as a result of which SAARC is alive and thriving today. One may not therefore fully count upon get-
ting consent of those memberstates who might feel felt out under the proposed arrangement.
Practice
Technicality apart, let us come to brass track or practicability of the issue. To secure the expressed will of both the governments and peoples concerned in forming a regional or international group, institution or organisation is of paramount importance. Britain stayed away for long from the European Union (EU) and finally had to resort to referendum for a decision. She still vacillates about joining the Monetary Union and this may be one of the contested points in the coming election there. India waited in the wings for some time before formally consenting to join the SAARC. Every country is guided by its enlightened self-interest. It is natural.
expected and must be accepted as such. But before setting out in a new area, one should do a bit of reconnaisance. Past experiences of related matter, it available, would be of some help.
Our experiences with India are rich, varied and cyclical. We received unparallelled help from her during the War of Liberation for which the national is grateful. The help and sympathy continued during the postLiberation government of the Awami League. Then It dried up. The government of Ziaur Rahman. however, succeeded in concluding a water treaty with India in 1977. Though it was an
interim treaty. It was an outcome of hard negotiations and painstaking efforts. 1 speak with first-hand knowledge, as I was then posted in Delhi as our Deputy High Commissioner.
The Bangladesh side moved heaven and earth to associate Nepal in a bld for long-term augmentation of waters In the Ganges so that a permanent solution to this major problem could be arrived at. But India did not budge an inch from her stand. To her, it was a bilateral issue and could not be internationalised. It was sacrosanct, despite its potentials for causing immense good for the people of the three countries. At that time. India did not even term it to be a regional issue. Even the first reaction of the then Indian Prime Minister Morarjl Desai during his meeting with Bangladeshi Presidential Adviser B M Abbas and High Commissioner Shamsur Rah
man was positive in securing Nepal s partnership in this project. But he did not press the issue In the face of an embarrassed Jagat Mehta, leader of the Indian delegation. Even an earlier approach to India for securing transit facilities for Nepal trough the narrow Indian territory to Bangladesh still remains unheeded?
Prognosis
It is. therefore, difficult to blame someone who wonders as to the rationale of an absolute transformation of Indian policy towards its neighbours — especially Bangladesh and Nepal. Is it because there is genuine realisation on India's part of the mistakes of her past policies and her desire to rectify them? Or. is it merely due to the assumption of power by friendly governments in these countries who would be easily amenable to accepting India's revised policies? Or. does it have something to do with the unprecedented rise in the level of Insurgency in the seven sister states in eastern India and the Federal government's need for easy and prompt access, transiting through Bangladesh, to this region and to the Chinese borders? Or. does it reflect the thinking of some people who would like to see India should spread economic hegemony over her eastern flank, to start with? In reality, the surge of Indian goods have already flooded Bangladesh and Bangladeshi enterpreneurs are hard put to compete. Or. does It manifest a pent up desire to gradually isolate India's arch-enemy. Pakistan. by way of evolving a similar regional group also In the southern flank of India? Not one of these reasons may be the Crime mover for this concept, ut a combination of all these are more likely to contribute to it.
An objective analysis of the situation, therefore, calls for a comprehensive and In-depth
analysis of the issue. It will take time and the government would do well not to bulldoze a decision. After all. major political. economic and social issues should be most desirably be settled by consensus. Without overwhelming popular support no leading national, regional an international issues could be settled for good. All political parties should, therefore, consider and deliberate upon the issue thoroughly now that the most appropriate forum of parliament Is available and being used by all law-makers.
Although one should not have the impudence to advise the Indian government, the latter may consider to invoke the mechanism of what is called sub-regionalism step by Step and not on a grandiose scale. Success in one project will generate fellow-feeling and trust which will be the welcome capital for other projects that can be taken up subsequently. An organisation will automatically grow up. notwithstanding any nomenclature it may be assigned. This will be possible where people of the countries concerned, by and large, will be convinced by the practical manifestation of benefits they would derive out of the new arrangement.
One may dare suggoul. for example, to take up the water issue and. more specifically, the issue of long-term augmentation of waters in the Ganges through a tripartite co-operation among India. Bangladesh and Nepal. International help will be easily forthcoming to implement such a project. This will definitely conform to the spirit and principles of the SAARC. Its major achievement will be to allay fears remove mistrust among peoples against India, the most powerful and the developed In the region. It will also help generate abundant goodwill and trust of the peoples of this region for India, Other projects designed to promote real and collective wellbeing of the people will automatically follow. And the people will then be able to lead their life not only in peace, happiness and some degree of prosperity but with full dignity and sovereign equality of nations.