Inside the diplomatic corp

By M.V. Kamath

Inside Diplomacy: Kishan S. Rana; Manas Publications, New Delhi, Pages 455; Rs. 500

What is common between, say, K.P.S. Menon, T.N. Kaul, B.K. Nehru and now Kishan S. Rana? One can add J.N. Dixit to this exotic list to make it more comprehensive. The answer is that they have all served in the Indian Foreign Service and what is more, have written about their experience. But among all these - and a few other like Rikhi Jaipal - Rana stands out as unique. He is not satisfied with just writing about his experience in various countries as an Indian diplomat. He is concerned with the very theory of diplomacy and how it works in the Indian situation. That is the uniqueness of this book.

Of its import he writes in his Introduction; "This book looks at the instruments of Indian foreign policy - the entire system of Indian diplomacy and the methodology through which foreign policy is implemented. It looks at the role played by the Ministry of External Affairs and by the missions abroad, the latter consisting of the embassies, the High Commissions, the Consulates General and the 'Permanent Missions' to the UN Offices". In fact it examines their role. It is a brave thing to do. A great deal of secrecy surrounds the work of the External Affairs Ministry (MEA) which is understandable enough. Though it may sound a bit exaggerated to say so, the MEA does deal with life and death matters in its dealings with other nations. These cannot be subject to public scrutiny all the time. Diplomacy, almost by definition, is secret and diplomats are expected to be tight-lipped about their work. That adds an aura of mystery round their heads, not often merited.

50 years of Independence and after

What Rana has proceeded to do is to tear the mask from those wearing it to tell his reader what happens behind the scenes and why. One might think of this work as a study of diplomacy ke piche kya hai? Rana regrets that even after 50 years of Independence, a 25 to 30 year rule for the declassification of the bulk of our archives has not been attempted. One suspects that this is an act of self-preservation on the part of Foreign Service officers.

Declassifying all those documents might reveal some of our Ministers and diplomats with their pants down. Rana, it might be said, is eminently qualified to write this book. He served the Foreign Office in various capacities and in various countries from 1960 to 1995 - a period of 35 years - retiring as Ambassador to Germany. In those years he also served as India's Ambassador and High Commissioner in Algiers, Prague, Nairobi and Mauritius and Consul General in San Francisco, besides serving as Joint Secretary in the Prime Minister's Office for a year between 1981 to 1982. In other words he speaks with authority.

Starting with a definition of diplomacy - it is like starting a business after an invocation to Ganesha - Rana proceeds to enlighten us on Policy Planning in the MEA, National Security and Intelligence (and the role of RAW), India's outbound economic and technical aid (which has always been substantial, but always underplayed), cultural diplomacy (yes, there's such a thing) consular work, multilateral diplomacy, pomp and circumstance, MEA's functioning, the management imperatives, the work of missions abroad, the inspectorate, MEA's properties abroad, the public interface, the NRIs (which Rana describes as an asset underplayed) and finally media relations including publicity management and media issues for missions abroad.

All that is quite a mouthful but it says it all.

Arbitrariness in decision making

No book in the past, to the best of one's knowledge has made such a thorough study of MEA and its operations at so many levels as Inside Diplomacy. Many truths are told that should embarrass the Ministry; many revelations are made, that come as a shocking surprise to the public. Rana says that "there is virtually nothing that can be called a 'system' of decision-making and that "at any point in time, the methods used are the product of that particular context, and are specific to the individuals in offices. Co-ordination between RAW and MEA is often non-existent! During Indira Gandhi's time the choice of action was "often intuitive". The formal Cabinet machinery was part of the sounding board, but seldom the forum for foreign policy decisions.

The External Affairs Minister was seldom her principal adviser and sometimes became a virtual bystander! Even under P.V. Narasimha Rao, "decisions were discussed, briefings were received and occasionally the Prime Minster threw up philosophical points, usually received in silence". During Indira Gandhi's regime especially, "the master plan became visible only as events unfolded" and "the style adapted itself to the Indian skills of improvisation and quick response". Truly amazing - and wholly disturbing.

As can be expected the book abounds in stories, some amusing, some shocking but almost all highly educative. If one were to pick them separately and put together they could make a best-seller. The book is fully documented. And one feels like the Dickensian character who wants to ask for more. Rana does not spare anybody, including his colleagues, but the nicest thing about him is that nothing is said with malice but as illustration of what should be and could have been.

Technology has changed diplomacy and its ways

The chapter on media issues abroad is incomplete but then, as in London or Washington, Rana could not have experienced the presence of Indian journalists in Algiers or Mauritius or even Bonn, on a permanent basis. My own experience abroad as a foreign correspondent in Bonn, Paris, New York and Washington has been one of total non-cooperation on the part of the diplomats present there.

In a technologically fast-changing world, the role of the diplomat may come to be increasingly shortened, a point that Rana deals with almost peripherally. With instant communication (Internet, e-mail, etc.) no diplomat need feel isolated or forced to take decisions on the spot that may not always be appreciated back home. That by itself is a subject meriting detailed study and analysis.

Unlike as in the past national leaders can get in touch with each other over the Hot Line and now on e-mail that could even circumvent the role of the Head of the Mission. But never mind, the points Rana has dealt with in his book deal with larger issues and remain relevant even while technology changes. Such a work has long been in demand and Rana has met it purposefully and in a scholarly way. Toward the end Rana devoted a few pages on how to make Indian diplomacy more effective. Coming from an experienced and seemingly objective diplomat, one hopes his suggestions will be met with the respect they deserve. He says: "Indian diplomacy needs revitalisation to become the purposeful national instrument that a globalising India deserves and mandates". To that, one can only say: "Amen!

By saying that, Rana has said it all. He deserves the country's - and the MEA's thanks.

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