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PAKISTAN FOREIGN POLICY

1. What a beautiful world we have, magnificent places full of natural beauty, the
sun, wind, cloud and the luxuries. Great feeling of love and peace which magnify,
the joys of relationship. This world is really a dreamland. Let’s come back to face the
cruel realities of the real world, destruction, miseries, sufferings and the
hopelessness. The question arises “why in a beautiful world we have so much cruel
realities?” The answer is very simple. The Creator made a beautiful world but the
humans and their relations embedded cruel realities in it. So the human relations or
more specific relations between nations are very important which make this world
heaven or hell. These inter-state relations when used as a policy are called Foreign
Policy.

2. GM, the Foreign Policy of a country is the pattern of relationship it

establishes with the outside world for the promotion of its national interests. Foreign
Policy is developed to create, deter, or control relations and interactions between
countries. Since the inception of Pakistan, the politico strategic environment in its
immediate surroundings remained exclusively dynamic, rendering peace and
security as basic concerns in the foreign relations of Pakistan 1. At present day,
Pakistan’s security environment has yet challenge to face in the aftermath of
nuclearization of the region, future roadmap for Afghanistan, internal security issues
and critical economic situation. This period represents one of the most challenging
period in Pakistan’s history. The Foreign Policy, being dynamic and flexible in nature
must have the capacity to cater for the future challenges.

3. GM, This brings me to the topic of my today’s presentation i.e. Pakistan’s

Foreign Policy. The sequence of presentation is as shown

4. GM, The foreign policy of a nation always predicts on the course country sets to
go as a sovereign state. This is the main determined of the policy of any nation.
Beside inter-state relations the important determinants in Pakistan’s case are its

(a) Ideology
(b) Security concerns
(c) National Interests and
(d) Public Opinion.

5. GM, Quaid-e-Azam Muhammad Ali Jinnah, the Founder of Pakistan and its
first Governor General, in February 1948, outlined the goals of Pakistan’s foreign
policy as shown “Our foreign policy is one of friendliness and goodwill towards all the
nations of the world. We do not cherish aggressive designs against any country or
nation. We believe in the principle of honesty and fair play in national and
international dealings and are prepared to make our utmost contribution to the
promotion of peace and prosperity among the nations of the world.”

6. GM, In light of the guiding principles laid down by the founding fathers and
the Article-40 0f constitution as also aspirations of the people of Pakistan, the
broader objectives of our foreign policy can be summarized as:-
1
Agha Shahi, “ Pakistan’s Security and Foreign Policy”, P-ix

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(a) Promoting Pakistan as a dynamic, progressive, and democratic Islamic

country.

(b) Developing friendly relations with all countries of the world, especially
major powers, Muslim countries and immediate neighbors.

(c) Safeguarding national security and geo-strategic interests, including

Kashmir. and

(d) Consolidating our commercial and economic cooperation with

international community

7. GM, The formulation of foreign policy cannot be conducted in isolation: it draws

its inspiration from history and gets its strengths from legitimacy of political structure.
The machinery responsible to formulate Pakistan’s foreign policy comprises:

(a) Ministry of Foreign Affairs consisting of bureaucrats who are

responsible to formulate and evaluate the foreign policy.
(b) Troika includes Prime Minister, Army Chief and President who jointly
can approve or disapprove any policy.
(c) Intelligence Agencies play a significant role as their primary function
is to give specific information and feedback in formulation of foreign policy.
And
(d) Political parties or Pressure Groups also influence the formulation of
foreign policy.

8. GM, in almost all modern states, especially democratic; it is The Ministry of

Foreign Affairs that is the focal point for the initiation of proposals related to conduct
of foreign affairs. The Foreign Ministry frames the objectives of foreign policy and
formulates the policy plans by setting priorities and give complete guide lines to
Troika. Proposals are generated and subsequently move up to Foreign Minister, who
further forwards it to Prime Minister and cabinet for deliberation and approval.

9. GM, The executive and political head of the foreign ministry is known as
Foreign Minister, who enjoys the highest profile portfolios in the cabinet and acts on
behalf of Prime Minister. The Foreign Minister is assisted by a Deputy Minister and a
Secretary who is also the administrative bureaucratic head of the ministry. The
ministry is distributed in to nine divisions. Eight of them are headed by Additional
Secretaries.

10. GM, the Organizational chart of Foreign Ministry of Pakistan is as shown.

Organization chart

11. GM. At the time of independence only 83 out of 1100 officers from Indian civil
Services joined Pakistan. Diplomatic Corp of Pakistan was constituted as Foreign
Service of Pakistan on an ad hoc basis immediately on the birth of Pakistan The
Service was first given an executive fiat in a decision of the Federal Cabinet in July
1948. Officers of the Foreign Service of Pakistan undergo common training at the
Civil Services Academy, Lahore and later are given six months specialized training

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at the Foreign Service Academy, Islamabad. A formal resolution constituting the

service was announced in October 1952. It envisaged diplomatic posts in the
Ministry of Foreign Affairs and in the Diplomatic and consular missions of Pakistan
abroad. The Administrative Reforms introduced in 1973 provided for a unified
structure of service with distinct specialized groups. At present the diplomatic corps
of Pakistan maintains 115 missions abroad in 86 different countries, constituting of
embassies and consulates of various levels with approximate staff of 6000
personnel. The diplomatic corps in any country are headed by ambassadors who
pursues national objective.

Role of Diplomatic Corps

12. GM, the Role of diplomatic corps is very specialized. Rightly said by Sir Henry
Wotton and I code “Ambassadors are the eyes and ears of the state. He is an
honest man, sent to lie abroad; for the good of his country. I uncode.

13. GM, The aim of diplomacy is to gain national advantage in the international
community without using force or causing resentment. The role of the diplomats is to
strive for the achievement of the policy objectives in terms of national interests. The
defined set of functions for diplomatic missions includes:

(a) Representation of owns state to host state.

(b) Protection of National interests in outer world.
(c) Negotiation of agreements on mutual interests.
(d) Reporting and gathering of information by lawful means on conditions
and developments in the host country.

14. GM, sometimes the terms Foreign Policy and Diplomacy create confusion.
The apt way to differentiate between them is to consider Foreign Policy as
Legislative and Diplomacy as the executive phase in the foreign policy
implementation.

ROLE OF ARMED FORCES AND INTELLIGENCE AGENCIES

15. GM, both in peace and war the superiority of military in national political power
is a pervasive phenomenon even in the modern world. However, in Pakistan’s case it
is alleged that the Foreign Policy making and implementation is hijacked and
controlled by the armed forces and intelligence agencies. To comprehend the
influence of armed forces and intelligence agencies on foreign policy of Pakistan I
would first briefly appraise the house about the concept of national security and its
relation to Foreign Policy.

Concept of National Security.

16. GM, National Security is the integration of all aspects of domestic, economic,
foreign and defence policies as well as all measures taken to ensure it. After
evaluating both internal and external threats, national security policy of a state is
framed for ensuring its security. Although there is a tendency to focus more on the
external dimensions while dealing with issues of national security, the internal

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dimension of security is equally important 2. The relevant factors constituting the

environment, both internal and external, which are essential for identifying the
national security concerns, with special reference to Pakistan can be summarized
as3 :-
(a) The Geopolitical Factor.
(b) The Size Factor.
(c) The Economic Factor.
(d) Internal Security Factor.
(e) External Security Factor.

17. It is a proven fact that due to above mentioned factors the military filters every
internal and external development through the lens of State National Security.

Influence of Armed Forces on Pakistan’s Foreign Policy.

18. GM, The government pattern of the Pakistan for last 66 years indicates 32
years of direct military rule. It is evident from our history that military and the
intelligence agencies control the crucial issues of Pakistan foreign policy. The
military has repeatedly demonstrated the fact that it can and will influence the
diplomatic direction of the state without necessarily assuming powers. The military
had and will continue, in the foreseeable future, to hold significant influence over the
issues related to nuclear policy, conflict resolution with India, War against terrorism
and Pakistan’s relation with USA.

19. GM an important question arises here that Why Armed Forces of Pakistan
has a greater Influence on Foreign Polices as compared to the other
developing countries. The first and most important reason is based on the fact that
Pakistan’s security environment derives its origin from the circumstances in which
Pakistan was created. The quest for security has been at the heart of Pakistan’s
foreign policy since independence. The violence during the period leading to the
emergence of India and Pakistan generated hostility and distrust, which continues to
afflict relations between the two countries mainly because of the ideological
difference and unresolved issue of Jammu and Kashmir. This issue is the source of
continuing tensions and has shaped the unstable and tense security environment
determining the contours of Foreign Policy 4. The three wars with India and the
situation in Afghanistan since 1979 increases the influence of armed forces in
reshaping our foreign policy. The rapidly changing geopolitical situation in
Afghanistan and nuclearization of South Asia again necessitated the increased role
of armed forces in formulation of its foreign policy. History of Pakistan reveals that
the overriding objective of foreign policy has been the desire to safe guard
sovereignty and territorial integrity.

20. Another important reason is the lack of visionary political leadership after the
death of Jinnah and Liaqat Ali in post independence years, which created a power
vacuum and the military leadership got opportunity to expand its affairs other than
external security issues. As its involvement in domestic affairs increased its charter
expanded to cover the vacuums in policy making to the fields of internal security,
2
M Shireen Mazari, “Rethinking the National Security of Pakistan” Margalla papers 2004, p-13.
3
ibid, p-12 to 21.
4
http://www. Pakistan . gov. pk/foreign affairs-division.

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economy and foreign policy affairs. As Armed forces got more powerful the easiest
way for western power was to directly contact and negotiate with them. USA
strategy in Afghanistan in 1979 gave a new dynamism to Armed forces and ISI
involvement in foreign Affairs. The direct involvement with foreign powers like USA
and Britain provided new leverages to influence Foreign policy. The alignment was
mutually beneficial. The armed forces sought arms and equipment to secure eastern
borders and the allies were given space in the region to fulfill their strength.
Therefore, an inference may be drawn that security environment and concerns
dictate the contours of Pakistan Foreign Policy which is the main reason of Armed
forces influence.

Major impact on foreign policy

21. GM, There is no doubt that armed forces due their tremendous sacrifices and
commitments defended the motherland and the nation is proud of them. But it is also
a fact that due militarys influence there were some major effects on Pakistan’s
foreign policy. Firstly Lack of Consistency and Frequent changes in foreign policy.
There were no proper risk assessment for the long term and mostly short cut
approaches were adopted. Another important aspect was that Foreign Policy
remained more tilted towards USA and western powers which exploited Pakistan’s
economical and military needs. Furthermore before any major change in foreign
policy the state institutions were not properly consulted and at times policy did not
reflect the aspirations of people of Pakistan. The positive impact was that Pakistan
more or less succeeded in achieving its foreign policy objectives towards India;
however, the Kashmir issue still remains unresolved.

Successes and Failures

22. GM, To evaluate successes and failures of Pakistan Foreign Policy it is

important to briefly view the historical phases of Pakistan’s foreign policy and find
major success and failures. The historical perspective of Pakistan’s foreign policy
falls in six broad phases:5

(a) Phase-I. The first period covers the time from 1947 to the 1964.
Pakistan began with an independent Foreign policy but after initial few years it
tilted towards USA and west. During this period Pakistan allied itself with the
USA by joining the Baghdad Pact and its successor, CENTO, and SEATO.
Instead of having balanced relationship with all the countries, Pakistan
preferred a major tilt towards the USA and western powers. The primary
motivation underlying our membership of these alliances had been the need
to redress our defense vulnerability and achieve a reasonable military
equilibrium with India. Our relations with former USSR were deteriorated and
India took full advantage of it. USA supported India in 1962 Sino-India conflict.
Pak-China relations remained cordial.

(b) Phase-2. The second phase runs from 1965 to the 1971 crisis in
East Pakistan. The 1965 war, which was sparked by the Jammu and Kashmir
issue, resulted in a drastic reduction in economic and military assistance to
Pakistan. At the time of need USA left Pakistan alone. China supported
5
ibid.

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Pakistan and provided diplomatic and military support. Pakistan strengthened

existing relations with China and supported China in its Endeavors to obtain a
seat on the United Nations Security council as a permanent member. After
seeing evident negative change in US policy Pakistan shifted its Policy
towards Soviet Union. Second martial law was imposed in 1969. The civil war
of 1971 with the Indian support resulted in misfortune event of breakup of
East Pakistan into Bangladesh.

(c) Phase-3. During the third phase from 1971 to 1989, Pakistan
initially moved away from USA and followed a policy of bilateralism and
nonalignment with emphasis on developing its economic, trade and diplomatic
relations with the Muslim countries. Pakistan also withdrew from SEATO and
CENTO. Pakistan democratic Government made efforts to transform the
Organization of Islamic Countries (OIC) to become a potent and productive
organization. Pakistan’s relations with Arab countries improved a lot.
Pakistan Also expended its relations with China, to get help in setting up
defense and civil industry. Pakistan relations with France, Germany and
Japan were mostly with the aim of getting economic aid. Pakistan’s diplomatic
relations improved with the third world countries of Eastern Europe, Africa,
South and Central America. USA suspended all economic and military
assistance to Pakistan in April 1979. During this phase Pakistan’s foreign
policy had also been influenced by major geo-political transformation in the
region. The up and down relationship with the USA took a major turn as a
result of common interests of both the states against USSR invasion in
Afghanistan. Due economic and defence needs Pakistan again became a
close ally of the USA and front line state supporting Afghans combating the
Soviets. Pakistan got economic assistance and military equipment from USA
but an influx of 3 million Afghan refugees brought social evils like Sectarian
violence, Kalashnikov and Narcotics.

(d) Phase-4. The fourth phase covers the period from 1990 to 1998
before nuclear tests. Once again after Soviet withdrawal, USA changed its
policy and both Pakistan and Afghanistan were left alone. USA clamped
economic and military sanctions on Pakistan under the Pressler Amendment
which widened the conventional weapons gap between India and Pakistan.
Pakistan-China jointly started the production of JF-17 Fighter aircraft. The
Kashmir freedom struggle gained momentum causing India to deploy over
600,000 troops into the Indian occupied territory of Kashmir. In the same
phase Pakistan’s greater support for Talban to achieve strategic depth was
also major events. The US also threatened to declare Pakistan as a state
sponsoring terrorism because of cross-border infiltration across the Line of
Control.

PAKISTAN’S FOREIGN POLICY-PRE 9/11

23. GM, The fifth phase i.e. Pre 9/11 phase has witnessed important
developments in Pakistan's foreign policy. These include: Pakistan’s initiative to
resume bilateral dialogue with India, the nuclear tests that radically altered the

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security environment of South Asia, and the crisis in Kargil. GM in spite of the
nuclearisation of both the countries, the miscalculated venture of Kargil led to
massive Indian response coupled with an effective diplomatic campaign severely
tarnished Pakistan’s image at the international level. The entire period was difficult
for Pakistan. We continued under the most oppressive US sanction, EU and Japan
almost followed US policy. A visible crack also appeared in Pakistan and Saudi
relations. Our close relations with Taliban had bad effects on our relations with Iran
and Central Asian Republics. This was the time which proved China Pakistan’s all
weather and time tested friend. GM, it is significant here to view Pakistan’s
Foreign Policy towards India and Afghanistan in some more details.

Relations with India

24. GM, after the nuclear tests, Pak-India relations improved significantly. There
was a considerable hope that Lahore summit in February 1999 could lead to a break
through, but the Kargil crisis in May 99 severely worsened the long running tensions
between India and Pakistan over Kashmir, raising the stakes with the possibility of a
regional war for the first time since the two countries tested nuclear weapons in
1998.

25. India took advantage of the situation and projected serious doubts about
Pakistan’s credibility as a rational interlocutor. India also questioned Pakistan’s
capacity to be in control of nuclear weapons by portraying it irresponsible and
reckless in conduct. On the other hand, Pakistan succeeded in bringing the Kashmir
issue in to lime light and engaging US President in an unprecedented commitment
aimed at facilitating a settlement of Kashmir issue 6.

Pakistan’s Afghan Policy

26. GM, Pakistan’s interventionist policy towards Afghanistan largely promoted by

US for its own interests continued even after the withdrawal of soviet troops.
Pakistan’s involvement in Afghanistan’s internal affairs and all out support to Taliban
To have a friendly government in Kabul for strategic depth, resulted in increased
chaos and gave birth to a state of civil war in Afghanistan. Pakistan did not take full
cognizance of the fact that the Taliban’s support for Osama was actually affecting
the impression of Pakistan. Pakistan being the supporter of Taliban, failed to restrain
the Taliban from such acts, which were exporting their brand of Islamic revolution to
neighboring states7.

Post 9/11 Scenario

27. September 11 is clearly one of the most significant events of the recent
times. After a critical analysis and weighing between its long term national interests
and association with Taliban administration, Pakistan decided to side with the United

6
ibid
7
ibid p-99.

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States in its campaign against terrorism 8. Pakistan unconditionally agreed to provide

certain facilities like logistic support and exchange of intelligence information to the
United States and coalition. Indian government also offered a similar cooperation
including airbases to US, but it was rejected by the US. 9

Relationship with India

28. GM, India felt greatly upset and frustrated over Pakistan’s close collaboration
with the US and world coalition. India tried to convince the world community that
Pakistan itself was involved in “Cross border terrorism” in Kashmir and India 10.
Exploiting the December 13 so called attack at the Indian parliament, New Delhi
escalated pressure on Pakistan by curtailing diplomatic relations, banning train and
air services and deploying its forces along the border with Pakistan and the line of
control in Kashmir. Pakistan responded with exemplary restraint and responsibility,
and offered to enter into dialogue to discuss disengagement of forces as well as an
extradition treaty.

29. GM, Pakistan’s policy of exercising restraint worked, and under the influence
of global powers, India regressed from its stubborn stance.

30. GM, In Global War against Terrorism, Pakistan virtually fought its war of
Existence and survived, however, it paid a very heavy price in terms of precious loss
of innocent lives and destruction of costly infrastructure. Pakistan initially enjoyed
good relations with USA and Western powers as the Front line state. Economic and
military aid was resumed. China and Saudi Arabia also supported Pakistan but
China has its concern about extremism exported from Pakistan.

31. GM, the sovereignty of Pakistan was badly hit when US conducted Abbottabad
Operation (Neptune Spear) well inside Pakistan to kill Osama Bin Ladden. The initial
different responses of Government and Armed forces clearly showed the lack of
coordination between them. The differences of diplomacy and military were clearly
evident. Again The Salala Check Post attack by USA resulted in martyrdom of 25
Army soldiers and clearly showed and conveyed the lack of American trust.
Pakistan’s coherent policy of closing down of NATO supply route and other
measures build pressure on USA.
32. GM, Pakistan’s pressure against drone attacks and policy of dialogue and
restrained with India normalized the relations. Pakistan is following policy of
enhanced strategic partnership towards China.

ANALYSIS

33. GM, after acquainting our self with brief history and major success and
failures of Pakistan’s foreign policy it is time to analyze these facts with an aim to
extract useful recommendations. Due to vast of the topic for analysis purpose I will

8
Khan, Muhammad Major, “Kashmir After9/11 : Implications and Options for Pakistan” Margalla papers 2004,
p-93.
9
ibid.
10
ibid.

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focus my vision to answer three important questions. GM, The first question is “is
Foreign Policy of Pakistan successful in achieving well defined objectives”. For
answer we will once again take a look at the main objectives of our Foreign Policy.
These are as shown

a) Promoting Pakistan as a dynamic, progressive, and democratic Islamic

country.

(b) Developing friendly relations with all countries of the world, especially
major powers, muslim countries and immediate neighbors.

(c) Safeguarding national security and geo-strategic interests, including

Kashmir.

(d) Consolidating our commercial and economic cooperation with

international community.

34. GM, The answer is very evident. The Historical facts revealed that due to
short term objectives Pakistan was never able to formulate a Foreign policy based
on achieving strategic long term objectives as defined. Yes Pakistan more or less is
successful in achieving short term objectives but lag far behind in achieving its long
term objectives. The next question comes up “What are the major factors due which
Pakistan could not formulate its Foreign Policy to achieve its defined objectives”.
The historical facts reveal that

(a) Lack of Farsightedness and Frequent changes in foreign policy

is one of the main drawbacks of our foreign policy. In other words, the
practitioners of our foreign policy have usually been pre-occupied with day-to-
day adjustments in response to changing circumstances without any sagacity
of long-term direction. Resultantly, the foreign policy of the country has been
different in almost every decade, lacking the stability it should have
maintained.

(b) GM, Due inherent Security Concerns since independence

Pakistan’s Foreign Policy lack balance and remained more tilted
towards USA and western powers. At times Pakistan’s Foreign Policy has
not been in the right direction; rather it was based on individual’s interests.
Due to these interests The Foreign Policy lacked solid base.

(c) GM, Pakistan’s weak economy and polices to get aid rather than trade
remain a source of ineffective foreign policy. As an economically weak state,
Pakistan has been exploited by major powers directly or through IMF and
World Bank. By their very existence these all influenced and affected our
foreign policy dimensions.

Pakistan’s Uncertain Domestic Environment.

(d) Another important reason for ineffective Foreign policy was uncertain
domestic environment. Main reasons for Pakistan’s uncertain domestic
environment are Frequent changes in system of Governance, Lack of

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visionary political leadership, and Failure to develop robust political

institutions.

Lack of Coherence

(e) GM, Lack of Coherence and wide gap in thinking between the military
establishment and the elected civilian set-up existed on different aspects of
national security. This gap and lack of coherence was also one of the
contributing factors in upsetting foreign policy.

(f) GM, the last but not the least, Pakistan’s miscalculated adventures
with the neighboring countries to pursue its own and others agenda created
an environment of uncertainty and mistrust in the region which ultimately
proved harmful for its own interest. GM, now the last question comes up
“What should be the way forward for Pakistan to achieve the well defined
objectives of foreign policy”

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RECOMMENDATIONS

35 GM, I would like to answer the question by presenting a few

recommendations:

36. First of all Pakistan must formulate a Foreign Policy based on achieving
the basic objectives. We as an independent state should follow an
independent principled foreign policy in the pursuit of our long term national
interest.

37. Instead of having USA as the main center of our Foreign policy Pakistan
should focus on all countries and international institutions where all our vital
political, economic and security interests converge. Especially, the top ten
countries of the world and the United Nation.

38. GM, Solid Economic Base is the most important factor in the development and
progress of nations. Pakistan’s Foreign policy must vigorously pursue the goal
of strengthening our economic base.

39. GM, As a Muslim country we must maintain good relations with Muslim world
and OIC and safeguard our vital political and economic interests by continuing to
improve economic ties with these countries.

40. Pakistan must maintain a cooperative regional environment for achieving its
national interest. Country specific policy should be formulated for India ,Afghanistan
and Iran.
41. GM Pakistan must improve its Decision Making Model. Pakistan’s
Present Foreign policy is reactive in nature, which indicates frequently changing
environment and lack of visualizing long term policy objectives. In order to improve
upon the existing Decision Making System key civilian institutions and important
ministries like Defense, Finance and Interior need to be fully integrated in the
system. Before any major change in Foreign policies Long-term policy objectives
should be clearly defined through a deliberate process of in house discussions with
experts and specialists.

42. GM, last but not the least for the success of foreign policy internal stability and
security is paramount. The primary focus should be the peoples of Pakistan and their
well being.

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CONCLUSION

43. GM, To conclude I would say that the Foreign Policy is often considered the
first line of defence and forms the backbone of any country. Weaker the policy
deformed will be the posture of the country. If Pakistan fails to formulate a realistic,
pragmatic, futuristic and diplomatically well adjusted policy would soon be alienated
in the galaxy of nations. The existing policy needs to be framed with a broader vision
to achieve long-term advantages. Pakistan has sailed through a difficult and critical
time. It has all the potentials to further consolidate and flourish in times to come. The
only need of the hour is to take right decisions, at right time and in right direction.
May be initially we face some difficulties but the joys of living as a respectable nation
are priceless.

GM, I Thank you for your patient listening.

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