The recent controversy over the Kerala government’s decision to appoint K. Vasuki as the officer in charge of “external cooperation” has drawn attention to an important but often overlooked aspect of India’s foreign policy landscape – the role of subnational entities in shaping international engagement. Known as “para-diplomacy,” in academia this practice of states and other subnational actors undertaking international cooperation initiatives has been gaining prominence in the 21^st century. 

Para-diplomacy: Indian Context

The Indian constitution designates foreign policy as a union subject. Still, given the diversity and the cultural and geographical interconnectedness of the Indian subcontinent, states have always played a substantial role, albeit implicitly, in foreign policy decision-making. The economic reforms of the 1990s and the advent of globalisation led to an increasing internationalisation of Indian states, paving the way for the explicit practice of para-diplomacy. Several Indian states, particularly Gujarat, Maharashtra, Tamil Nadu, and Andhra Pradesh, have championed para-diplomacy to attract foreign investments and promote trade. Kerala has also made a name for itself in the Indian para-diplomatic scene, leveraging its aggressive international tourism campaign and its role in engaging the diaspora.

Despite the emergence of para-diplomacy in the post-reform period, an institutional framework to facilitate centre-state coordination was established only in 2014 with the creation of the ‘States Division’ in the Ministry of External Affairs (MEA). It is believed that Prime Minister Modi’s own experience as Chief Minister prompted him to establish this mechanism. The States Division is mandated to share MEA’s experience and expertise and to facilitate states’ international cooperation in coordination with Indian embassies abroad. To further promote para-diplomacy, in May 2016, the then Minister of State for External Affairs, Gen. V.K. Singh, requested all states to appoint Nodal Officers and tasked Indian embassies abroad to establish contact points for coordination. Given that the Kerala government’s action was in line with the centre’s instruction, the controversy was politically motivated and unwarranted. It is also worth noting that the position of the nodal officer had been vacant for almost a year after Amb. Venu Rajamony, who had served as the Officer on Special Duty for ‘external cooperation’ left office in September 2023.

Need for a Strategic Approach to Kerala’s Para-diplomacy

For Kerala, a state with a long history of international connectivity, the need for a strategic approach to para-diplomacy has never been more crucial. Three key developments underpin this necessity. First, over the past few decades, the nature and intensity of Kerala’s international linkages have undergone a dramatic transformation. This is driven by the state’s socioeconomic evolution, including shifting migration patterns and the reconstituted character of its diaspora. Second is the heightened competition in the Indian para-diplomacy sphere among states. The economic reforms of the 1990s and the process of globalisation have led to increased internationalisation of Indian states. This has created a competitive environment, with states vying to attract foreign direct investment and forge international economic partnerships. The third aspect is the dramatic shift that is underway in the international landscape on account of geopolitical, geoeconomic, and technological developments. Being attuned to global trends and having state-level capabilities can help leverage one’s position to capitalise on opportunities in global industrial, supply-chain, transport, tourism, and knowledge networks among others.

In this context, a strategic approach to para-diplomacy can help Kerala harness its international potential and position itself as a globally significant destination. This approach should focus on three key dimensions. The first dimension is destination branding, which is aimed at promoting the image and visibility of Kerala to a global audience. Kerala’s success as a premier tourist destination is well-established, but its visibility and image as an investment, economic cooperation, or education hub remain limited. Effective destination branding and public relations efforts can help enhance Kerala’s global profile. However, this must be complemented by efforts to improve the state’s competitiveness in terms of infrastructure, talent, and value proposition. Additionally, Kerala should explore diversifying its outreach beyond the traditional Western and Gulf markets, tapping into the growing opportunities in East and Southeast Asia.

The second dimension that needs attention is the strengthening of institutional mechanisms and modes of international outreach. The proliferation of chief ministerial and ministerial visits to foreign countries, as well as the appointment of a nodal officer for “international cooperation,” are positive steps. However, a more comprehensive institutional framework is needed to facilitate a whole-of-government approach to para-diplomacy. Establishing a dedicated agency to coordinate and encourage international engagement across various state government departments and sub-state actors including city cooperations could be a game-changer. This agency could also work to leverage the platform offered by Indian embassies abroad, which has been effectively utilised by other states like Gujarat and Tamil Nadu.

The third dimension that demands attention is strategic thinking and capacity-building. Developing a Kerala-centric perspective on global developments is crucial to identifying and leveraging international opportunities within the constraints of India’s federal structure. This requires a long-term commitment to strengthening international relations research and education, including the promotion of foreign language education in universities and think tanks. 

Way Forward

Although the central government during the last decade has ostensibly promoted para-diplomacy, it has also been subject to politicisation reflecting the contemporary dynamics of Indian federal politics. In this context, Kerala must assertively navigate the federal dynamics and work to strengthen its institutional capacity and strategic thinking on para-diplomacy. Beyond the political considerations, the larger question is whether Kerala’s para-diplomacy efforts have been substantive and efficient in addressing the state’s developmental and global aspirations. A critical examination of the state’s past initiatives, their impact, and the institutional mechanisms in place can provide valuable insights for the way forward.

(Jojin V John is Hon. Senior Fellow, CPPR and Assistant Professor, School of International Relations and Politics, Mahatma Gandhi University, Kottayam)

Views expressed by the author are personal and need not reflect or represent the views of the Centre for Public Policy Research.

Jojin V John

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