Nepal’s Foreign Policy: The Challenges of Non-Alignment
Dr. Vidhu Prakash Kayastha
Nepal aiming to maintain friendly relations with all global powers while avoiding entanglement in the rivalries between them. However, in recent years, particularly under communist leadership, the country’s foreign policy has undergone significant shifts, and its ability to maintain a neutral stance has been called into question. The issue at the forefront of these discussions is the growing influence of China in Nepal, often referred to as the “China Card.” This strategic play has generated tensions with neighboring India, Nepal’s traditional ally and a major player in the region.
Historical Context: Non-Alignment as the Pillar of Nepal’s Foreign Policy
Since the establishment of the democratic republic in 1951, Nepal has largely adhered to a non-aligned foreign policy. This position has been shaped by its geographical location between two of the world’s most populous and influential countries—India and China. Nepal has consistently sought to avoid getting caught in the ideological and political tussles between these two powers, and for decades, India has been Nepal’s closest neighbor, trading partner, and primary source of political influence.
During the Cold War, Nepal sought to balance its relations between the two superpowers, the United States and the Soviet Union, by emphasizing its non-aligned status. After the end of the Cold War, Nepal continued to champion the ideals of non-alignment and self-determination. Its foreign policy was largely centered on maintaining sovereignty and avoiding external interference, a strategy that was seen as crucial to maintaining stability in a region prone to political upheaval.
The Shift: The Rise of China and Nepal’s Communist Leadership
In the past two decades, however, Nepal’s foreign policy has experienced significant changes, particularly as China’s global influence has expanded. The 2008 Maoist insurgency in Nepal brought communist forces to power, altering the country’s political landscape and foreign relations. The ruling communist parties, particularly the Communist Party of Nepal (Unified Marxist-Leninist) (CPN-UML) and the Communist Party of Nepal (Maoist Centre), have become increasingly supportive of China’s growing economic and geopolitical influence in the region.
One of the most prominent developments in Nepal’s foreign policy in the 21st century has been the growing relationship between Nepal and China, particularly through the Belt and Road Initiative (BRI). China’s massive infrastructure investments, including the construction of roads, railways, and trade routes linking Nepal to the broader Asian region, have provided a much-needed boost to Nepal’s economy. For a country that has long struggled with limited access to global markets, these opportunities are seen as vital for economic growth.
However, the growing proximity between Nepal and China has not been without its challenges, particularly when it comes to Nepal’s relationship with India. Nepal has historically maintained close ties with India, sharing cultural, historical, and geographical connections. But as the communist government has increasingly leaned toward China, many in India view Nepal’s pivot as an unsettling development, one that threatens to alter the balance of power in the region.
The China Card and India’s Concerns
One of the most contentious aspects of Nepal’s foreign policy in recent years has been its playing of the “China Card,” a strategic move often seen as an effort by Nepal’s communist leaders to secure political and economic leverage. This has become especially evident during times of domestic instability, such as when Nepal’s communist government sought to strengthen ties with Beijing to assert its sovereignty and minimize India’s influence.
For instance, the Nepal-China border agreements in 2015 and the signing of the framework agreement for the Belt and Road Initiative (BRI) in 2017 were seen as attempts by Nepal to diversify its foreign relations and reduce its reliance on India. However, these actions have raised alarms in India, which views the growing China-Nepal relationship as a potential threat to its strategic interests in South Asia. India has long regarded Nepal as part of its sphere of influence, and the growing proximity between Nepal and China is seen as a direct challenge to that influence.
The situation reached a boiling point in 2020 when Nepal issued a new political map that included disputed territories with India, such as Kalapani, Lipulekh, and Limpiyadhura. The map was released in response to India’s construction of a road in the disputed region near China’s border. Nepal’s decision to include these territories in its official map was seen as a direct response to India’s actions, and it was widely interpreted as an attempt to assert Nepal’s sovereignty over areas that India claims as part of its own territory. While Nepal defended the move as a legitimate assertion of its territorial integrity, the timing and context of the dispute fueled suspicions that the Chinese influence played a significant role in stoking the tensions.
The Nepal Communist Coalition and the China Card: A Unified Approach
The “China Card” has not been exclusively played by the communist factions of Nepal, such as the CPN-UML and the Maoist Centre. In fact, this shift in Nepal’s foreign policy towards China was also visible when the country was governed by a coalition of communist parties, including the Maoists and the CPN-UML, alongside the Nepali Congress (NC), one of the country’s largest and traditionally pro-India political parties. The coalition government, which held power in various phases during the 2015-2018 period, showed a surprising degree of support for engaging with China, despite Nepal’s long-standing historical and cultural ties with India.
Under the leadership of the Nepali Congress and the Communist parties in a coalition, the focus on China was markedly evident. The alliance worked together on agreements that strengthened economic, infrastructural, and trade relations with China, marking a departure from Nepal’s past reliance on India. During this period, Nepal’s participation in China’s Belt and Road Initiative (BRI) gained momentum, signaling a more strategic embrace of Beijing. The coalition sought to balance Nepal’s diplomatic relations between India and China by actively promoting deeper ties with China, even as Nepal continued to rely on India for access to the South Asian market and security concerns.
This alignment with China, however, left Nepal in a difficult position. While the Maoists and CPN-UML saw it as a necessary move to escape India’s overwhelming influence, the Nepali Congress—while also participating in the coalition—remained cautious about straining ties with India. Despite this, the influence of the Communist parties in the coalition government resulted in a policy that prioritized strengthening Nepal-China ties, which created tensions not only within the coalition but also between Nepal and India.
The Fallout: Diplomatic Tensions and Domestic Repercussions
The growing influence of China in Nepal has created a delicate balancing act for the government. While the Nepalese communist leadership continues to cultivate its relationship with Beijing, it also risks alienating India, its largest trade partner and the primary source of security cooperation. The diplomatic tensions between Nepal and India have caused rifts within Nepal’s political landscape as well, with opposition parties accusing the communist government of compromising Nepal’s traditional ties with India in favor of China.
In Nepal, the issue has become highly politicized. While the ruling parties argue that strengthening ties with China is in Nepal’s national interest and necessary for economic development, opposition parties and nationalist groups argue that Nepal is compromising its sovereignty and stability by allowing China to gain undue influence over its internal affairs. The dispute over Nepal’s foreign policy direction, particularly regarding China, has become a major point of contention in national politics.
The Road Ahead: Nepal’s Struggle for a Neutral Foreign Policy
As Nepal moves forward, the challenges of maintaining a non-aligned foreign policy in an increasingly polarized world are becoming more evident. The growing influence of China in Nepal is unlikely to diminish, and the Nepalese government may continue to rely on Beijing for economic and infrastructure support. However, it is also clear that Nepal cannot afford to ignore its long-standing ties with India, a regional power with which it shares deep cultural, economic, and strategic ties.
The “China Card” played by Nepal’s communist government has undeniably contributed to a shift in Nepal’s foreign policy, but it has also strained the country’s relationships with India. For Nepal to navigate its foreign policy successfully in the years ahead, it will need to find a way to balance its relations with both China and India while remaining true to its traditional stance of non-alignment. Failure to do so could lead to further diplomatic isolation and internal political instability, undermining Nepal’s efforts to maintain its sovereignty and regional security.
In the end, Nepal’s foreign policy will likely continue to be shaped by the delicate interplay between these two powerful neighbors, with each side seeking to influence the country’s direction in ways that serve their own strategic interests. For Nepal, the challenge will be to play its cards wisely, maintaining its independence and sovereignty in the face of competing external pressures.
