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Shantanu Roy-Chaudhury, “From ‘Look East’ to ‘Act East’: Mapping India's Southeast Asian Engagement,” ORF Issue Brief No. 800, May 2025, Observer Research Foundation.
Introduction
The evolution of India’s ‘Look East’ policy in the early 1990s to ‘Act East’ in 2014 signalled a pivotal expansion from a focus on economic cooperation to embracing strategic partnerships as well, amidst Southeast Asia’s growing geopolitical significance. The Act East policy extended India’s regional focus beyond trade to encompass security cooperation, infrastructure development, and people-to-people connectivity.
With the policy entering its 10th year in 2024, the Modi 3.0 administration has demonstrated a renewed emphasis on Southeast Asia through unprecedented diplomatic outreach. Such intensification serves multiple strategic objectives: countering China’s regional influence; securing vital sea lanes; and advancing India’s vision of a free, open, and inclusive Indo-Pacific. The policy is not merely diplomatic rhetoric but represents a comprehensive framework guiding India’s regional engagements.
India’s Southeast Asian strategy recognises the centrality of the Association of Southeast Asian Nations (ASEAN) as the institutional foundation of regional architecture. India has systematically deepened its institutional ties with ASEAN through multiple mechanisms, such as the following:
The Modi 3.0 administration has also emphasised ASEAN centrality through concrete initiatives. At the ASEAN-India Summit, Modi outlined 10 suggestions to enhance connectivity and resilience that included trade facilitation and the institutionalisation of a cyber policy dialogue.[1]
India has supplemented its ASEAN-centred approach with sub-regional initiatives that address specific geographic and functional priorities. The following are some examples:
These multilateral frameworks provide India with flexible platforms to advance regional cooperation while addressing specific geographic priorities. They reflect the strategic diversity of India’s Southeast Asian engagement.
Bilateral Engagements: A Thematic Analysis
In less than a year since PM Modi began his third term, India has had numerous bilateral engagements with Southeast Asian nations (see Table 1).
Table 1: India-Southeast Asia High-Level Diplomatic and Military Engagements (July 2024-January 2025)
Country | Head of State/Government Visits | Ministerial-Level Visits | Senior Official Meetings |
Brunei | Aug 2024: PM Modi visits Bandar Seri Begawan, Brunei. | - | - |
Cambodia | - | - | Dec 2024: Inaugural joint exercise of Indian and Cambodian armies held in Pune, called CINBAX, with counterterrorism as the focus. |
Indonesia | Jan 2025: Indonesian President Prabowo Subianto visits New Delhi as chief guest for India’s Republic Day celebrations. | Oct 2024: India’s Minister of State for External Affairs, Pabitra Margherita, visits Jakarta to attend President Subianto’s inauguration ceremony. | Aug 2024: India and Indonesia hold the 6th joint working group on counterterrorism in Jakarta. Sept 2024: The two countries hold their 8th Foreign Office Consultations in New Delhi. Nov 2024: Indian and Indonesian navies conduct the Garud Shakti Special Forces Exercise at Cijantung, Jakarta. Dec 2024: India’s Chief of Naval Staff, Dinesh Kumar Tripathi, visits Jakarta. Dec 2024: The Indian and Indonesian navies hold their 43rd Coordinated Patrol at Sabang, Aceh. |
Laos | Oct 2024: PM Modi attends the 21st ASEAN-India summit in Vientiane; meets Laotian President Thongloun Sisoulith and Prime Minister Sonexay Siphandone. | Nov 2024: Defence Minister Rajnath Singh attends the ADMM+ meeting in Vientiane. | - |
Malaysia | Aug 2024: Malaysian Prime Minister Anwar Ibrahim visits New Delhi, India-Malaysia ties elevated to a Comprehensive Security Partnership. | Sept 2024: Minister of State for External Affairs Kirti Vardhan Singh visits Kuala Lumpur. | Dec 2024: 4th annual joint exercise in counterinsurgency and jungle warfare between India and Malaysia, called Harimau Shakti, held at Bentong Camp, Pahang District, Malaysia. Jan 2025: First India-Malaysia Security Dialogue held in New Delhi, chaired by India’s National Security Advisor to the PM, Ajit Doval. |
Myanmar | - | - | Nov 2024: Think tank Indian Council for World Affairs holds a seminar on constitutionalism and federalism in New Delhi, to which representatives of both Myanmar’s ruling military junta’s State Administration Council (SAC), as well as organisations opposed to the junta are invited. |
Philippines | - | Nov 2024: Defence Minister Rajnath Singh meets his Philippines counterpart, Gilberto Teodoro, on the sidelines of the ASEAN Defence Ministers Meet in Vientiane. Jan 2025: MoS Pabitra Margherita visits Manila. | Sept 2024: 5th India-Philippines Joint Defence Committee meeting held in Manila. Sept 2024: 14th India-Philippines Policy Consultation and 5th India-Philippines Strategic Dialogue held concurrently in New Delhi. Dec 2024: 1st India-Philippines Maritime Dialogue held in Manila. |
Singapore | Sept 2024: PM Modi visits Singapore; Comprehensive Strategic Partnership signed. Jan 2025: Singapore President Tharman Shanmugaratnam visits New Delhi. | Aug 2024: 2nd India-Singapore Ministerial Roundtable held in Singapore, with several senior Indian and Singaporean ministers in attendance. Nov 2024: External Affairs Minister S. Jaishankar visits Singapore. | Oct 2024: 6th India-Singapore Defence Ministers’ Dialogue held in New Delhi, with Minister of Defence Rajnath Singh and his Singaporean counterpart leading their respective delegations. Oct 2024: Indian Navy and Singapore Navy hold the 31st Singapore-India Maritime Bilateral Exercise in the Bay of Bengal. Oct 2024: 1st India-Singapore Cyber Policy Dialogue held in Singapore. |
Thailand | Oct 2024: PM Modi meets Thai Prime Minister Paetongtarn Shinawatra on the sidelines of the East Asia Summit in Vientiane. | July2024/Nov 2024: Thailand’s Foreign Minister Maris Sangiampongsa visits New Delhi twice, the first time to attend the 2nd BIMSTEC foreign ministers meeting and the second time for talks with his Indian counterpart S. Jaishankar. | July 2024: The 15-day 13th edition of the annual India-Thailand military exercise, called ‘Maitree’, held at Fort Vachiraprakan in Tak Province, Thailand. Dec 2024: 9th India-Thailand Defence Dialogue held in New Delhi. |
Timor-Leste | Aug 2024: President Draupadi Murmu visits Dili, Timor-Leste. | - | |
Vietnam | July 2024: Vietnam Prime Minister Pham Minh Chinh visits New Delhi. | - | Aug 2024: 4th India-Vietnam Maritime Security Dialogue held in Hanoi. Aug 2024: The 14th India-Vietnam Defence Policy Dialogue held in New Delhi. Dec 2024: 3rd India-Vietnam Security Dialogue held in Hanoi. |
Source: Author’s own, using various open sources
Key Domains of India-SEA Cooperation
Maritime security has emerged as a dominant theme in India’s Southeast Asian engagements, reflecting both geographic imperatives and strategic priorities. This focus has led to several key developments:
This maritime focus serves India’s broader strategic objective of positioning itself as a net security provider in the Indo-Pacific while countering China’s maritime assertiveness, particularly in the South China Sea. The pattern of engagement reveals a deliberate focus on states with territorial disputes with China (Vietnam, Philippines) and those strategically positioned along critical sea lanes (Indonesia, Singapore).
Defence cooperation has transitioned from symbolic goodwill gestures to substantive operational collaborations, emphasising interoperability and defence industrial partnerships. The following points outline the aspects of this shift:
This deepening defence cooperation reflects India’s efforts to reduce Southeast Asia’s dependence on traditional security providers while creating strategic interdependencies that serve its long-term regional interests. It also demonstrates Southeast Asia’s increasing comfort with India as a security partner, distinct from concerns about entanglement in the US-China competition.
As traditional security cooperation matures, India has expanded engagement with Southeast Asia into emerging domains, particularly cybersecurity and digital technologies:
This emerging domain of cooperation leverages India’s technological capabilities while responding to Southeast Asian concerns about digital dependency on China. It also creates new avenues for economic integration through digital connectivity and technical standards harmonisation.
Despite progress in security and technology cooperation, India’s economic engagement with Southeast Asia remains underdeveloped. This can be inferred from:
The economic dimension represents the most significant gap in India’s Southeast Asian strategy. The imbalance potentially limits the sustainability of India’s regional influence in competition with China’s comprehensive economic engagement.
Country-Specific Engagement Patterns: A Comparative Analysis
While a thematic analysis reveals strategic priorities, examining country-specific engagement patterns highlights India’s differentiated approach to the Southeast Asian states based on their strategic significance, geographic location, and political orientation.
India has prioritised engagement with maritime states that share strategic concerns about China’s assertiveness in the South China Sea:
These partnerships are characterised by substantial security cooperation, alignment on maritime governance principles, and shared concerns about external interference in regional waters. However, as noted earlier, economic engagement lags well behind the security links with these countries, particularly with the Philippines and Vietnam.
India has cultivated special relationships with states that serve as economic and connectivity gateways to the broader Southeast Asia region:
These three partnerships are characterised by greater economic content, institutional density, and diplomatic investment compared to other Southeast Asian relationships. They serve as platforms for India’s broader regional engagement, particularly in emerging domains like cyber cooperation and financial connectivity.
India’s approach to mainland Southeast Asia reflects the complex balance it has to find between security imperatives, connectivity ambitions, and political considerations:
These four relationships are characterised by greater complexity, lower institutionalisation, and more pronounced security-development trade-offs compared to India’s maritime partnerships. They represent both the frontier of India’s Southeast Asian engagement and its most significant implementation challenges.
President Murmu’s unprecedented visit to Timor-Leste in August 2024 highlights India’s strategy to pay attention to even the newest Southeast Asian nations.[a],[32] It reflects India’s comprehensive regional approach. While ties remain nascent, the presidential visit has established foundations for future engagement.
Conclusion: Strategic Recalibration and Future Trajectories
India’s intensified engagement with Southeast Asia in 2024 reveals a sophisticated recalibration of its regional strategy. The new strategy has three distinct patterns:
First, there is a clear prioritisation of maritime-oriented partnerships, evident in the establishment of new maritime dialogues with the Philippines and the expansion of naval exercises with Indonesia and Singapore. This serves dual purposes: it positions India as a capable maritime security partner while creating additional pressure points to counter China’s assertiveness in the region.
Second, the pattern of engagement demonstrates a deliberate effort to institutionalise relationships through new diplomatic and military mechanisms. The creation of first-time dialogues—from the inaugural CINBAX exercise with Cambodia to the first Security Dialogue with Malaysia—suggests a shift from ad-hoc interactions to sustained, institutionalised partnerships. This institutionalisation provides resilience to bilateral relationships and creates enduring channels for strategic cooperation that transcend political changes.
Third, India’s engagement reveals a nuanced approach to regional power dynamics. While maintaining robust partnerships with traditional partners, Modi’s government has made unprecedented outreach to smaller states like Brunei and Timor-Leste. This comprehensive approach helps India present itself as a more attractive regional partner than China, whose engagement has often focused primarily on the larger ASEAN states.
However, this strategic recalibration faces various challenges. The suspension of the Free Movement Regime with Myanmar highlights the tension between security imperatives and historical ties. Similarly, the simultaneous engagement with Myanmar’s military junta and opposition forces reflects the complexities of balancing strategic interests with democratic principles. These challenges suggest that India’s regional strategy, while more comprehensive than before, still grapples with reconciling competing priorities.
Looking ahead, the success of India’s recalibrated Southeast Asian strategy will depend on three factors: first, its ability to maintain the current intensity of engagement across multiple partners simultaneously; second, the extent of its success in translating diplomatic and military initiatives into tangible economic and technological cooperation; and third, its capacity to navigate the increasingly complex regional dynamics, particularly as Southeast Asian states themselves seek to balance their relationships amidst the broader US-China competition in the region.
India’s Southeast Asian engagement under Modi 3.0 represents a significant evolution from the earlier Act East framework and is marked by greater strategic coherence, institutional depth, and regional comprehensiveness. While implementation challenges persist, the foundations laid through this intensified engagement position India as an increasingly consequential player in Southeast Asia’s evolving strategic landscape.
Endnotes
[a] Timor Leste (earlier called East Timor), was founded in May 2002, breaking away from Indonesia.
[1] Ministry of External Affairs, Government of India, “English Translation of India's National Statement at the 21st ASEAN-India Summit Delivered by Prime Minister Narendra Modi,” October 10, 2024, https://www.mea.gov.in/Speeches-Statements.htm?dtl/38399/English_translation_of_Indias_National_Statement_at_the_21st_ASEANIndia_Summit_delivered_by_Prime_Minister_Narendra_Modi.
[2] Keshav Padmanabhan, “Connectivity, Peace at India-Myanmar Border: What Jaishankar Discussed at Mekong Ganga Cooperation Meet,” The Print, July 17, 2023, https://theprint.in/diplomacy/connectivity-peace-at-india-myanmar-border-what-jaishankar-discussed-at-mekong-ganga-cooperation-meet/1672584/.
[3] Premesha Saha and Abhishek Mishra, “The Indo-Pacific Oceans Initiative: Towards a Coherent Indo-Pacific Policy for India,” Observer Research Foundation, December 23, 2020, https://www.orfonline.org/research/the-indo-pacific-oceans-initiative-towards-a-coherent-indo-pacific-policy-for-india.
[4] Asian Development Bank, “BIMSTEC Master Plan for Transport Connectivity,” April 2022, https://www.adb.org/documents/bimstec-master-plan-transport-connectivity.
[5] BIMSTEC, “Thailand Hosts the 6th BIMSTEC Summit in Bangkok on 04 April 2025,” April 5, 2025, https://bimstec.org/event/247/thailand-hosts-the-6th-bimstec-summit-in-bangkok-on-04-april-2025-.
[6] Ministry of External Affairs, Government of India, https://www.mea.gov.in/press-releases.htm?dtl/38767/Inaugural_IndiaPhilippines_Maritime_Dialogue_Manila.
[7] Ministry of External Affairs, Government of India, https://www.mea.gov.in/press-releases.htm?dtl/38164/4th_IndiaVietnam_Maritime_Security_Dialogue.
[8] Ministry of Defence, Government of India, https://pib.gov.in/PressReleasePage.aspx?PRID=2070205.
[9]Rajat Pandit, “India Steps Up Training of Foreign Military Personnel to Boost Ties,” Times of India, June 27, 2024, https://timesofindia.indiatimes.com/india/india-steps-up-training-of-foreign-military-personnel-to-boost-ties/articleshow/111298337.cms.
[10] Ministry of Defence, Government of India, https://pib.gov.in/PressReleasePage.aspx?PRID=2066727.
[11] Ministry of Defence, Government of India, https://pib.gov.in/PressReleasePage.aspx?PRID=2040680.
[12] Ministry of Defence, Government of India, https://pib.gov.in/PressReleasePage.aspx?PRID=2083914.
[13] Ministry of Defence, Government of India, https://pib.gov.in/PressReleasePage.aspx?PRID=2069969.
[14] Ministry of Defence, Government of India, https://pib.gov.in/PressReleasePage.aspx?PRID=2079649.
[15] Ministry of Defence, Government of India, https://pib.gov.in/PressReleasePage.aspx?PRID=2079505.
[16] Ministry of Defence, Government of India, https://pib.gov.in/PressReleasePage.aspx?PRID=2053803.
[17] Ministry of External Affairs, Government of India, https://www.mea.gov.in/press-releases.htm?dtl/38435/First_Cyber_Policy_Dialogue_between_India_and_Singapore.
[18] Ministry of External Affairs, Government of India, “Joint Statement on India – Malaysia Comprehensive Strategic Partnership,” August 20, 2024, https://www.mea.gov.in/incoming-visit-detail.htm?38187/Joint+Statement+on+India++Malaysia+Comprehensive+Strategic+Partnership.
[19] Ministry of External Affairs, Government of India, https://www.mea.gov.in/press-releases.htm?dtl/38231/2nd_round_of_IndiaSingapore_Ministerial_Roundtable.
[20] Ministry of Home Affairs, Government of India, https://pib.gov.in/PressReleaseIframePage.aspx?PRID=2003884.
[21] Ministry of External Affairs, Government of India, “Joint Statement on India – Malaysia Comprehensive Strategic Partnership”
[22] Ministry of External Affairs, Government of India, https://www.mea.gov.in/press-releases.htm?dtl/38048/State_Visit_of_HE_Pham_Minh_Chinh_Prime_Minister_of_the_Socialist_Republic_of_Vietnam_to_India.
[23] Ministry of External Affairs, Government of India, “India-Indonesia Joint Statement on the State Visit of H.E. Prabowo Subianto, President of Republic of Indonesia (23-26 January 2025),” January 26, 2025, https://www.mea.gov.in/bilateral-documents.htm?dtl/38944/IndiaIndonesia+Joint+Statement+on+the+State+Visit+of+HE+Prabowo+Subianto+President+of+Republic+of+Indonesia+2326+January+2025.
[24] Ministry of Defence, Government of India, https://pib.gov.in/PressReleasePage.aspx?PRID=2066701.
[25] Ministry of External Affairs, Government of India, https://www.mea.gov.in/press-releases.htm?dtl/38243/Visit+of+Prime+Minister+to+Brunei+Darussalam+and+Singapore+September+0305+2024.
[26] Ministry of External Affairs, Government of India, https://www.mea.gov.in/press-releases.htm?dtl/37345/India_Myanmar_Foreign_Office_Consultations_FOC.
[27]“India Extends Unprecedented Invite to Myanmar’s Anti-Junta Forces: Sources,” Bangkok Post, September 23, 2024, https://www.bangkokpost.com/world/2870708/india-extends-unprecedented-invite-to-myanmars-anti-junta-forces-sources.
[28] Ministry of Defence, Government of India, https://pib.gov.in/PressReleasePage.aspx?PRID=2030153.
[29] Ministry of Defence, Government of India, https://pib.gov.in/PressReleasePage.aspx?PRID=2083914.
[30] Ministry of External Affairs, Government of India, https://www.mea.gov.in/press-releases.htm?dtl/38408/Meeting_of_Prime_Minister_with_Prime_Minister_of_Thailand.
[31] Ministry of External Affairs, Government of India, “Prime Minister Meets with President of Lao PDR,” October 11, 2024, https://www.mea.gov.in/outoging-visit-detail.htm?38406/Prime+Minister+meets+with+President+of+Lao+PDR.
[32] President of India, Government of India, https://www.presidentofindia.gov.in/press_releases/president-india-timor-leste-meets-president-and-prime-minister-timor-leste.
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Shantanu Roy-Chaudhury is the author of The China Factor: Beijing's Expanding Engagement in Sri Lanka, Maldives, Bangladesh, and Myanmar (Routledge, 2023). ...
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