Opinion

Between strategy and geography: Nepal's foreign policy in the shadow of India-China competition

China and India are shifting from identity-driven foreign policy to pragmatic, instrument-based statecraft. For Nepal, this presents both opportunities and constraints

By Binoj Basnyat

Photo: RSS

Nepal's foreign policy challenge is often framed in familiar terms – a small state navigating between two giants. Indeed, it is operating at the intersection of two evolving strategic logics: China's transition from restraint to systemic influence, while India is moving from a voice in the system to a player shaping outcomes. Power is not declared – it is designed, deployed, and sustained. Understanding this intersection is critical. Without it, Nepal risks oscillating between short-term tactical decisions rather than developing a coherent long-term strategy. China's trajectory provides the first layer of insight. From Zhou Enlai's normative diplomacy to Deng Xiaoping's economic pragmatism and Xi Jinping's systemic aspiration, Beijing's foreign policy has evolved in distinct phases. Each has shaped how China engages its periphery, including South Asia. Under Zhou, China articulated the Five Principles of Peaceful Coexistence –sovereignty, non-interference, equality, and peaceful coexistence. These principles resonated with newly independent states, including India under Jawaharlal Nehru, offering the promise of a post-colonial order grounded in mutual respect. That promise collapsed with the Sino-Indian War. For India, the lesson was enduring: normative principles cannot override hard security realities. This experience continues to shape Indian strategic thinking: its sensitivity to Chinese activity in neighbouring states. Deng's era introduced a more subtle dynamic. China avoided overt geopolitical confrontation while focusing on economic modernisation, urging the country to 'keep a low profile.' Yet even in restraint, China accumulated material power at an unprecedented pace. For India, this marked a shift from optimism to vigilance. China is no longer just participating in the system or ideological contrast, it is re-wiring parts of it becoming a structural rival. Under Xi, this trajectory has culminated in systemic ambition. China is no longer content to rise within the existing order; it is actively shaping it through infrastructure initiatives, connectivity corridors, and institutional influence. For India, this is not merely economic engagement, it is perceived as strategic breach. It is within this evolving strategic landscape that Nepal must define its foreign policy. For India, the Himalayas have long served as a natural buffer. Any significant external presence – particularly from China – within Nepal is therefore viewed not as neutral, but as a potential shift in the regional security balance. The open Nepal-India border amplifies this sensitivity. For India, the possibility that external actors could indirectly influence this space remains a persistent concern. China's growing engagement with Nepal, meanwhile, offers undeniable opportunities. Infrastructure development, trade diversification, and connectivity initiatives provide alternatives that landlocked Nepal has long sought. Yet this opportunity is not without risk. China's engagement is not purely economic; it is embedded within a broader framework of influence and long-term positioning. The challenge for Nepal is not whether to engage China, but how to do so without triggering India's security red lines or compromising its own autonomy. China and India are shifting from identity-driven foreign policy to pragmatic, instrument-based statecraft. For Nepal, this presents both opportunities and constraints, requiring a strategy of calibrated balance that preserves national agency despite asymmetry. Economic diplomacy should be central to this approach, enabling Nepal to leverage its natural resources and transition from a transit-dependent state to a value-generating partner. By diversifying partnerships and attracting investment, Nepal can strengthen its strategic autonomy. Nepal-India relations, in particular, must evolve towards deeper economic cooperation. Hydropower development and cross-border infrastructure offer strong potential, although challenges such as protectionism, non-tariff barriers, and bureaucratic inefficiencies remain. For Nepal, the challenge is equally internal. Policy inconsistency, bureaucratic inertia, and political instability have limited its ability to fully leverage external opportunities. To navigate this environment, Nepal must adopt a disciplined and structured approach. First, it must differentiate between types of external engagement. Economic cooperation in trade, tourism, and civilian infrastructure is broadly acceptable. However, projects with potential dual-use implications – particularly near sensitive borders or in critical sectors – carry strategic weight and require careful scrutiny. Second, transparency must become a central instrument of policy. In a region defined by conspiracies, mistrust, secrecy is destabilising. Clear communication –especially with India – regarding major external engagements can reduce misperceptions and prevent escalation. Third, Nepal must invest in internal capacity. Its greatest vulnerability is not foreign interference but domestic strategic national priorities. Strong institutions, policy continuity, and administrative competence are essential to sustaining strategic autonomy. Fourth, diversification beyond the China-India binary is critical. Engagement with partners such as the European Union, Gulf, Japan, and Southeast Asia as stakeholders in economic equity can expand economic and diplomatic approach, strengthening its overall negotiating position. Finally, Nepal must articulate a clear and consistent strategic narrative. It is neither a buffer state nor a battleground. It is a sovereign actor pursuing stability, development, and balanced engagement. This narrative must be reflected not only in rhetoric but in sustained policy choices. China-India competition will intensify as China pursues systemic ambition and India adopts security-driven realism. Nepal sits at the intersection of these shifts. In such a setting, foreign policy must be proactive, consistent, and grounded in a clear understanding of both opportunities and constraints. Basnyat is a Maj. General (retired) of the Nepali Army