The UK’s ‘refresh’ of its Integrated Review of national security and international policy, published on March 13, heightens concern over China while continuing to seek cooperation with India and supporting a regional balance of power in the Indo-Pacific. It acknowledges that conflict in the Indo-Pacific could have global consequences greater than the conflict in Ukraine, and, unlike its predecessor, makes no mention of Pakistan.New Delhi will likely welcome 2023 Refresh for the UK’s commitment to advocate India’s candidacy for permanent representation on the United Nations Security Council in a policy document for the first time and more generally to build relationships “without forcing zero-sum choices or encouraging bipolarity in the international system”, to support an Indo-Pacific vision “where a regional balance of power ensures no single power dominates” and the explicit recognition of the challenge that China threatens to an open and stable international order.New Delhi had welcomed the 2021 Integrated Review for the explicit importance it placed on India as a partner in the UK’s Indo-Pacific ambitions and across the full scope of their shared interests.But the dedicated section on the UK-India relationship is only a fifth in size of the 2021 version. Arguably just more succinct, it simply identifies the ongoing and anticipated bilateral cooperation through the Comprehensive Strategic Partnership, UK-India 2030 Roadmap, India’s G20 presidency, Free Trade Agreement negotiations, UK maritime security leadership within India’s Indo-Pacific Oceans Initiative, a stronger defence and security partnership and furthering collaboration on technology.The 2023 Refresh was commissioned in the wake of “growing global volatility” provoked by Russia’s invasion of Ukraine, China’s increasingly aggressive posturing and attempts to shape a more authoritarian international order, events such as the Taliban takeover in Afghanistan creating new opportunities for terrorism and serious crime and the intensification of transnational challenges.So, without expanding on a broader strategic vision for the UK-India relationship or establishing ambitions beyond those already set out and in progress, the 2023 Refresh does not provide much indication of how the UK-India relationship will adapt and respond to this rapidly and increasingly unstable global context.Also read: Understanding the UK’s ‘Tilt’ Towards the Indo-PacificNotably, the Refresh makes no mention of the Indian Ocean Region or provide specifics on what strengthening the UK and India’s defence and security partnership will look like. The update to the accompanying Defence Command Paper will possibly do so but is not expected until June. Debating the 2023 Refresh in Parliament, shadow foreign secretary David Lammy criticised the UK’s reduced diplomatic presence including in India over the past eight years.Furthermore, the 2023 Refresh introduces the concept of an “Atlantic-Pacific” network, to underscore the inextricable economic and security links between the Euro-Atlantic and Indo-Pacific and collective efforts to broaden and strengthen cooperation with like-minded allies and partners across the two regions.It references a recent agreement between the UK and France to coordinate a persistent European carrier strike group presence in the Indo-Pacific, yet surprisingly, makes no mention of the Indo-Pacific Quad despite both UK and India concurrently deepening strategic ties with its other members (Australia, Japan and the United States). The Indo-Pacific and China The original Integrated Review, released in 2021, notably announced the UK’s Indo-Pacific “tilt” and intention to be “the European partner with the broadest, most integrated presence” by 2030.This “tilt”, according to the 2023 Refresh, has now been achieved, with a new objective to make it a permanent pillar of UK international policy. The ambitious target to establish a leading role in the Indo-Pacific by the end of the decade has now been altered to reflect a long-term, partnership and institution-based approach, guided by regional perspectives, the need to increase burden-sharing responsibilities in the region and the reality of the UK’s resources and geography.The 2023 Refresh makes clear the continued importance the UK places on the Indo-Pacific region, critical to its economy and security and of “disproportionate influence on the global economy, supply chains, strategic stability and norms of state behaviour”. The relationship with India, critical to the UK’s Indo-Pacific interests will, therefore, remain a regional priority for the UK.The review also upgrades its assessment of China to that of an “epoch-defining and systemic challenge” as a result of its use of its military power and economic coercion to shape an international order favourable to itself and authoritarianism. It sets out the UK’s “Protect. Align. Engage” framework to counter this challenge, pursuing greater national security measures, engaging in greater cooperation and collective response with allies and partners whilst maintaining continued dialogue with China and working together on global challenges.India will likely be reassured by the more extensive policy articulation towards China, having previously been distrustful of the UK’s ambitions for a “golden-era” of UK-China relations under previous premierships. While understandably pragmatic given China’s significance on global issues, the UK is now unambiguously aware of the threats and challenges it poses to an open and stable international order and democratic values.Way forwardDuring a trip to India in February, UK government minister for defence procurement, Alex Chalk, defined the need for strong UK-India relations as “mission critical” and currently at a “pivotal moment”.Since the original 2021 Integrated Review was released, the UK and India have established a number of initiatives and areas for cooperation, particularly in the defence and security domain. The political will for a broader, deeper and stronger relationship, now evident over successive UK Premierships, has been made clear.But this will must be matched with continued action and the bilateral rhetoric of politicians must be matched by results if it is to translate into an effective and sustainable partnership.The Integrated Review Refresh recognises the importance of the UK-India relationship and effective cooperation in the Indo-Pacific, but it was commissioned because the original one no longer sufficiently responded to the growing global volatility and pace of geopolitical change. If it is not to be reflected in this strategy document, the UK and India must ensure their partnership adapts so it can sufficiently respond.Simran Brookes is a Research Assistant, South Asia Programme, The International Institute for Strategic Studies (IISS), London, UK.
