Hazard a guess...
Standard (bureaucratic) operating procedure: separate photos to verify that you as the visa applicant applying--often by mail, rather than in person--to a consulate office are the same person as the photo that appears on your passsport;
vs.
when you're physically presenting yourself at a border crossing requesting a visa, the border authority can immediately verify that you look like/ are the same person that appears in your passport photo.
[?]
It's a "visa," regardless (assuming that's what the particular country requires for India nationals to enter that country)
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