Toward a New Decade: Research on the Sustainable Development of FOCAC
2010/10/15
abstract
FOCAC is a successful and pioneering cooperation model jointly explored by China and Africa. The Forum has become an important platform for facilitating China-Africa relations since its founding 10 years ago. Within this framework the two sides have achieved great accomplishment through cooperation, and have created new development areas. Currently, the international system is experiencing deep adjustments, and the international political, economic and security situation is becoming increasingly complicated. Within such a context, the Forum continues to embrace new development opportunities as well as face new challenges. This paper will evaluate the achievements and the experiences of the Forum, and offer some proposals on promoting the sustainable development of FOCAC within the new context.
I. FOCAC Achievements in the Last Decade
The great changes in the international situation following the Cold War have brought both new opportunities and challenges for China-Africa relations. FOCAC (Forum on China-Africa Cooperation) is a new cooperative model they have created within this new context. It is the first time in the history of China-Africa relations that a platform has been available for dialogue and cooperation, to meet new challenges, and to solve problems of common interest.[①] The Forum, since its founding 10 years ago, has strongly promoted China-Africa joint development, expanded China’s international influence and Africa’s soft power, also elevating Africa’s international status, and pushed China-Africa relations to a new stage. It is a success for both China and Africa, as well as an important achievement for south-south cooperation as well. It has demonstrated the strong vigor and huge potential of development partnerships between China, the largest developing country, and Africa, the continent with the largest number of developing countries.[②]
1. A win-win prospect for China-Africa joint development
The biggest challenge facing humankind in the 21st century is development. Since its founding, the Forum has regarded the facilitation of joint development as its main purpose. China’s peaceful development has benefited from Africa’s active political support, and China has achieved its rapid economic development through the availability of Africa’s markets and resources. While focusing on its own development, China has also provided assistance to Africa within its ability. For instance, at the first conference of the Forum, the Chinese delegation announced a reduction and cancellation of debts totaling RMB 10 billion for some African HIPCs (the heavily indebted poor countries) and LDCs (the least developed countries); at the second ministerial conference, the Chinese delegation promised to further increase its financial contribution to the African Human Resources Development Fund for the training of up to 10,000 African personnel in various fields; at the Beijing Summit and the third ministerial conference, the Chinese delegation offered eight proposals for pragmatic cooperation between China and Africa; at the fourth ministerial conference, the Chinese delegation proposed another eight new measures, including providing US$ 10 billion of preferential loans to African countries, granting tariff exemption to 95% of exports from LDCs in Africa having diplomatic relations with China, and increasing assistance to Africa. These measures also covered areas dealing with climate change, scientific and technical cooperation, the enhancement of Africa’s financing capability, agricultural cooperation, the expansion of market access, investment promotion, debt exemption, medical care and public health, and human resources development. They are significant for strengthening China-Africa friendship and economic cooperation in the new era, and African countries have paid close attention to and have warmly welcomed them.[③]
The series of measures since the founding of the Forum have contributed greatly to Africa’s economic development, and China, through the engine of the Forum, has become a new impetus for Africa’s economic development. Africa’s recent rapid economic development, with an average annual growth of more than 5%, can be largely attributed to the strong driving force of China-Africa economic and trade cooperation. The trade volume between the two sides has increased from US$ 10 billion in 2000 to US$ 106.8 billion in 2008, with an average annual growth of more than 30%, in the 10 years since the founding of the Forum. Although the total volume was decreasing in 2009, China-Africa trade for this year will resume its rapid growth with the recovery of the global economy and the rise in the price of commodities.[④] In addition, since the first China-Africa economic and trade cooperation zone was constructed in Zambia in February 2007, China has established 6 such zones in the 5 countries of Zambia, Egypt, Mauritius, Nigeria and Ethiopia, and some of them have already formed a significant scale and have even begun to produce positive economic benefits. China-Africa trade has significantly increased the prices of Africa’s primary commodities, China’s open market has promoted Africa’s exports, and China’s investment and infrastructure construction has led to the rapid expansion of Africa’s economy. To date, the direct investment of China’s 1600 enterprises in Africa amounts to US$ 7.8 billion. In 2009, China’s direct investment amounted to US$ 1.36 billion, an increase of 36% compared with 2008, at a time when Western countries sharply reduced their direct investment or even cancelled their aid programs in Africa because of the financial crisis. Moreover, China has announced that it will increase its China-Africa development fund by US$ 200 million.
Martyn Davies, Chief Executive Officer of Frontier Advisory (Pty) Ltd, South Africa, has observed that without China, many African countries, especially those dependent on the raw materials market, would have had no economic growth in 2009. Beijing’s economic stimulus package is good news for Africa since Africa’s economic growth has been largely connected with that of China.[⑤] Chinese involvement has brought real progress to Africa.[⑥]
2.China’s global influence and Africa’s improved international status
Africa has become an important partner for China in its emergence as a global power. With China’s growing involvement in international affairs, China understands that it needs partners, that Africa is its best partner,[⑦] and that China has benefited far more from its relations with Africa than simple resource extraction. The establishment and effective operation of the Forum have served as a mechanism for, and have institutionalized, China’s traditional and friendly relations with Africa, and have increased China’s influence in Africa as well. Because of the close attention of the international community to the rapid development of China-Africa relations, some Western powers have changed their positions about China’s presence in Africa. They no longer unreasonably question China’s role but recognize that China’s presence in Africa benefits not only China and Africa but also other countries, including Western countries,[⑧] and they even try to cooperate with China on African affairs.
The forum has also made important contributions in promoting Africa’s international status and facilitating its global integration. First, other countries have paid closer attention to the Forum, and traditional Western powers in particular have increasingly attached importance to Africa since the Forum has become a successful example of cooperation between international community and Africa. As a result, they have had to adjust their policies and increase cooperation with Africa. Effective cooperation with China has greatly increased Africa’s bargaining power in South-North dialogues and has elevated Africa’s international status as a whole. Second, the Forum has enhanced Africa’s collective identity. In participating in a series of summits, African countries have gradually realized that all other countries have integrated and comprehensive policies toward Africa while African countries do not have a unified responsive policy. The understanding that they should have common positions and policies serves to enhance Africa’s unity, and the collective consciousness of growing stronger in a united way and developing in a joint manner further promotes Africa’s integration.
3.China’s Africa policy system and a new stage of China-Africa relations
China’s strategy toward Africa is decided by the CCCPC (the Central Committee of the Communist Party of China), but implemented separately by different government branches, including the Ministry of Foreign Affairs and Ministry of Commerce. Despite some communication and coordination, there is also overlapping of functions among these departments. The Forum has played a positive role in bridging differences and integrating resources in China’s Africa policy, thus making it more mature. The Forum is also innovative and has demonstrated new features in each conference since its founding. For example, the China-Africa Business Conference first began during the second Ministerial Conference in 2003. Hence, the Forum has become a platform for cooperation between entrepreneurs, such as in the Third Business Conference which attracted about one thousand entrepreneurs. The Beijing Summit and the Third Ministerial Conference of 2006 created a new mechanism for cooperation between the two sides, which has institutionalized China-Africa political consultation at the foreign ministerial level on the sidelines of the UN General Assembly. In addition, the two sides have also established the mechanism of Senior Officials Meeting, Secretariat of Chinese Follow-up Committee, and the mechanism of consultation among African missions in China. At the Fourth Ministerial Conference, the two sides decided to hold the FOCAC Culture Forum in due course and strengthen regular consultations among government cultural departments.
The effective operation of the above mentioned mechanisms, gradually translating cooperation from bilateral into both a bilateral and multilateral framework, has lifted China-Africa cooperation to a new stage. In 2000, the two sides proposed to establish “a new-type of long-term and stable partnership based on equality and mutual benefit”; in 2003, the two advocated “a new-type of partnership featuring long-term stability, equality and mutual benefit and all-round cooperation”; and in 2006, the two were committed to “a new type of strategic partnership between China and Africa featuring political equality and mutual trust, mutually beneficial economic cooperation, and cultural exchanges”. Since the founding of the Forum, relations between the two sides have grown deeper as a result of continuous development.
II. FOCAC in Post-Financial Crisis Era
The achievements of the last 10 years have laid a solid foundation for the continued development of the Forum. Currently, the Forum is entering into its second decade of existence, which coincidentally coincides with the post-financial crisis era. On the one hand, the global financial and economic problems caused by the crisis are still having a profound impact on the trends of international politics and relations and as the crisis deepens, the impact proliferates to almost every aspect of deepening globalization.[⑨] Furthermore, during this period of adjustment, friction among major powers is increasing due to competing interests and the willingness for international cooperation is decreasing because of domestic concerns. On the other hand, the crisis has not broken the global economic balance and has not stopped the emergence of common “global interests.” The expansion of “global interests” indicates that the growth of international cooperation will continue to be the inevitable trend of the future, and cooperation and mutual benefit will be the new political paradigm of globalization.[⑩] The crisis will also facilitate a substantial transformation of the international system. As a new type of player, whose emergence forms one of the conditions of the transformation of the old order, China is even playing a role - though maintaining a low profile - in its own special way in the development of international cooperation.[11] The new circumstances create not only challenges but also historic opportunities for the development of the Forum.
1.Transformation and reorganization of the international system: New opportunities for FOCAC
The G20 Pittsburgh Summit of September 2009 resulted in the expansion of the G8 to the G20 as a permanent international economic cooperation organization. Meanwhile, the IMF has increased the voting power of developing nations. These changes suggest that the international community has agreed to adjust and reorganize the previous inequitable international system. The years 2010 and 2011 will be a critical period for the creation of G20 institutions and policies, and competition around G20 in the designing of international system will be increasingly intensive. Since both China and Africa belong to the developing world, the two sides have to closely coordinate with each other to attain a better position in the future international system. The Forum will be an important platform for such coordination.
Furthermore, frustrated globalization, the product of the financial crisis and economic recession, will probably cause a new round of regionalism and regional integration. Currently, Africa has various overlapping and even competing sub-regional groups, and its regional development is in a quagmire of security problems. Therefore, Africa needs to accelerate the formation of its collective identity and diversify its cooperative partners. These steps will provide opportunities for the Forum’s cooperation with African Union and sub-regional communities and for transforming China’s bilateral relations with African countries into a real and strategic one.[12]
2.Increased China-Africa interdependence and the rise of global issues and multilateral diplomacy
In the post-crisis era, solutions to global issues require international cooperation. Within such a context, the role of multilateral cooperation has never been more important. The Forum has become a successful multilateral mechanism and can further carry out more functions. First, China and Africa have benefited and will continue to benefit substantially from the Forum. In the future, the two can jointly deal with global issues via this mechanism. Second, multilateral diplomacy toward Africa triggered by the Forum has brought about more options and greater flexibility for Africa. Finally, with the rise of China’s international status and its participation in reorganizing and rebuilding the international system, China will increase its participation in and creation of multilateral diplomacy. The Forum, a successful application of China’s multilateral diplomacy, will provide an important example for the creation of future multilateral efforts. China values the role of the Forum in promoting China-Africa relations. Therefore, China has proposed a greater push for its sustainable development and to combine multilateral and bilateral diplomacy.
Africa is of great significance for a peaceful rising China since it is the base of China’s foreign strategy. The Forum serves as an important platform for China’s new type of partnership with Africa within the new international context. Moreover, China’s emergence is an equally rare opportunity for Africa. Politically, China treats Africa as equal and, therefore, has become a natural partner for its diplomatic diversification. Africa has gained real benefits from its cooperation with China, including debt relief, an open market, preferential loans, projects improving living conditions, development of human resources, and new cooperative areas and so on. Therefore, Africa equally regards the Forum as an important mechanism.
3.Challenges in the post-crisis era
The Forum’s first ten years have been fruitful and have witnessed significant changes in the international environment; the post-crisis period features further adjustments and increasing competition. Mechanisms like the G20 and BRICs increasingly overlap with each other. Global challenges, such as international financial reform, climate change, and international terrorism, are having important effects on the transformation of international system. However, China’s development has been the focus of world attention, and, in the coming years, “the road ahead will not be smooth. It may even be filled with difficulties and challenges. China will also have to face uncertainties in its external environment.”[13] Although Africa’s political and economic situation remains favorable, the security situation in some parts of the continent is still vulnerable. The impact of the financial crisis on Africa’s economy has not run its course, and the withdrawal of BP’s and Shell’s investments from their downstream petroleum industries has further cast a shadow over Africa’s economic recovery.[14] Undoubtedly, the development of the Forum will also face new problems and challenges in the post-crisis era.
First, the diversification of international and domestic actors and their related interests in Africa will form a certain level of pressure on the development of the Forum. Internationally, various countries are paying more and more attention to Africa. Not only traditional powers and newly rising powers have either strengthened or created platforms dealing with their relations with Africa, but also international organizations are increasingly taking notice of Africa. Worthy of greater concern is the increased interest of non-government actors like NGOs and transnational corporations. They usually focus on particular problems and have significant potential to initiate new international agendas. Thus, they can create more pressure on the behaviors of national actors and international organizations.
In the meantime, diversification has also occurred in China’s domestic actors involved in African affairs and in their interests. Beyond government bodies, more and more state and private enterprises have come to Africa through the “walking out” strategy, and quite a number of them are pursuing opportunities independently. Their concern for their own interests will impact the development of the Forum to differing degrees.
Second, various actors have different, and sometimes even conflicting, expectations for the development of the Forum, which is one of the byproducts of the diversification, and requires a more balanced development of the Forum. In recent years, Africa’s aspirations for the Forum have been growing. They expect that China will not only provide more assistance so that they can recover from the crisis sooner, but also transfer technology and experience to upgrade their industries and create economic patterns. In addition, Africa expects more cooperative measures via the Forum dealing with tough challenges like climate change and expects that China can help Africa gain a greater voice in the reorganization and reconstruction of the international system.
Newly rising powers have in recent years created multilateral platforms imitating the Forum and expect that the Forum will produce a certain kind of “free rider” effects. But their relations with Africa have not drawn the desired attention since the Forum has attracted too much from the international community, especially the West. Traditional western powers have relatively complicated attitudes toward the Forum. They have to accept the reality of the rapid development of China-Africa relations, have to contend with the disillusionment of being overtaken, and even expect to direct the development of China-Africa relations by participating in cooperation. Furthermore, some non-state actors represented by NGOs also intend to intervene in and influence the development of the Forum for various purposes.
Third, the foundations of China-Africa relations have also changed within the new international context. Compared with the past, the role of friendship has been declining while calculation of interests has been rising in China-Africa relations, though with no causal links. Since the end of the Cold War, China and Africa have been transformed from “old friends” to “new partners” due to the changed external and internal environment and in the absence of the old friendship developed by the former leaders of both sides. Because of the new historic stage and realities, China and Africa need to develop new friendships based on the old paradigm. Currently, interests greatly outweigh friendship, and, since the people of the two sides do not have close and deep contacts, they do not have objective mutual understandings and even often misunderstand each other. How to accommodate “friendship” with “interests” will be an ongoing problem for the Forum.
Fourth, “responsible power expectations of China” held broadly by developing countries, “responsible power requirements of China” held by Western developed countries, and “responsible power responsibilities of China” held by China itself are three expectations that will call for greater demands on the future development of the Forum.
One, China needs to make more contributions to Africa’s development and security. Currently, in its revival, Africa is changing its status from “passive actor” to “proactive actor.”. Despite opportunities, challenges to Africa are increasing instead of decreasing. In addition to traditional security problems, climate change, organized crime, and piracy have become new challenges that Africa needs to address jointly with the international community. In the future, the Forum will have richer and more complicated themes and agendas. As a responsible power and sincere friend of Africa, China will do “something more” within its capability to meet the needs of Africa.
Two, China needs to reinterpret some of its traditional principles regarding its relations with Africa. Against the background of globalization, the line between internal and external affairs is fading, and some of the traditional principles and policy terms are increasingly questioned and criticized. For example, some argue that “China’s assistance undermines Africa”, while others argue that “China neglects human rights issues”, and still others have raised the specter of “neo-colonialism”. In fact, China has been keeping pace with times and adjusting its relations and policies accordingly, including those toward Africa. Nonetheless, China has to follow up with new policy statements, accommodate principles with flexibility, combine its non-intervention principle with its international responsibilities, and recognize the interests of both sides and even those of the third parties, which are also the concerns of the Forum.
III. Pushing for Sustainable Development of FOCAC
Productive as it is, the Forum has to improve its own mechanisms and institutions while defining its status and functions correctly so as to meet with the opportunities and challenges brought by the current turmoil, transformations and adjustments.
1.Strategy for sustainable development
The Forum is aimed at sustainable development of China-Africa relations. Only when sustainable development of China-Africa relations is realized can the sustainability of the Forum be achieved.
First, it is necessary to promote a balanced development of China-Africa political, economic, cultural and social relations, and to consolidate the foundations of interests. Against the background of China-Africa economic and trade relations, political and cultural exchanges are urgently needed. The two sides should abide by the principles of non-intervention in domestic affairs and respect for sovereignty; support the efforts of its partners in seeking its own developmental road and model; implement the principles of the new type of strategic partnership concretely in joint projects; formulate special regulating articles for China-Africa trade; and regulate behaviors while providing more preferential market access for African commodities.
Second, it is necessary to adhere to the principles of mutually beneficial cooperation and to promote Africa’s sustainable economic and social development. Future cooperation should follow the principles of consolidating foundations, expanding areas and stressing primary projects. In other words, the two sides should discuss and select some new areas and projects based on previous cooperation. Additionally, new measures proposed at each conference should fit into Africa’s needs and within China’s capability. Thus, the Forum will be sustainable and effective, and will be able to meet Africa’s expectations while China is not overburdened.
2.Building platforms for integrating domestic resources
Judging by the performance of the first ten years, the Forum needs to be constructed as a comprehensive platform integrating domestic resources for the purpose of China-Africa relations, a strategy which is also feasible.
First, policies and measures adopted at the level of central government and at the level of local governments should be integrated. Measures should be modified that have the central government’s enthusiasm but do not have the support of local governments; modification is also necessary when enthusiasm is unequal between the elite and the general public or when enthusiasm exists when there is business but absent when there is none. Moreover, qualified provinces and cities should host the conferences of the Forum so as to stimulate the zeal of local governments and enhance their knowledge about China-Africa strategic partnership. Second, the diverse actors relevant to China-Africa relations should be properly guided so as to normalize economic and cultural exchanges with a longer term perspective, and to avoid capricious changes in attitudes or behaviors. Third, the follow-up committee’s capability should be strengthened, our enterprises’ behavior in Africa should be strictly regulated, and their awareness of social responsibility should be improved. Our embassies should be strengthened in their ability to manage Chinese enterprises in Africa; it should not be standard practice that enterprises only appeal to embassies when accidents occur. Meanwhile, China should develop the awareness of social responsibility among its enterprises, especially those of large state enterprises in Africa, and devise regulations for their social responsibility in the local society. Those enterprises involved in resource development and infrastructure construction should proportionately contribute some funds, in addition to governmental assistance funds, in order to achieve social improvements.
3.A major channel for communication
The Forum should be developed as a major channel for China’s communication with Africa and a stage for the explanation of China’s Africa policy. As mentioned above, we need to reinterpret some traditional principles and create new standards to meet the new situation. The Forum should develop into the best platform for the explanation of China’s relations with Africa and Chinese policies.
The Forum should promote exchanges between the two sides at both the elite and general public levels to consolidate friendship; in particular, the Forum must promote understanding among a new generation of leaders and the younger generation so as to lay a solid political foundation for China-Africa cooperation in the longer term and to improve China’s national image and increase its soft power, ensuring long-term friendly cooperation.
There is a need to have communications and dialogue with third parties via the Forum, so long as it does not undermine China-Africa relations. In fact, just like other bilateral relationships, China-Africa relations are not confined to the bilateral level, but have an impact on third parties, such as the United States and Europe. Regarding China-Africa relations, particularly Africa’s security and development, the dialogue will be conducive not only to Africa’s security and development but also to China-Africa bilateral relations and their respective relations with the third party. Therefore, we can hold discussions and dialogue with the United States and Europe on African issues provided that we observe the principles of China-Africa bilateralism and maintaining the initiative in our own hands; we can accept and even cooperate with Western countries on specific projects promoting Africa’s economic development. Real achievements will dispel Africa’s doubts.
4.Improving the institutions and mechanisms of FOCAC
First, the framework of the Forum should include regional and sub-regional cooperation organizations as well as the civil society of Africa. While developing assistance programs and promoting bilateral relations, we should also strengthen coordination with sub-regional organizations, such as the African Union and NEPAD, to facilitate regional integration. Regarding assistance requirements, we should establish relevant mechanisms to study and select the projects so as to invest more on those which truly improve living conditions, focus on Africa’s internal development gap, and appreciate the interests of weak and small countries. We should consult with Africa’s regional and sub-regional organizations and implement assistance projects through their offices. Concurrently, we should include some civil organizations in the monitoring of relevant projects to ensure concrete implementation, increase transparency, and image enhancement.
Second, we should establish and improve the branches of the Forum. The Forum currently includes China-Africa business conferences and consultation between foreign ministers, two mechanisms that concentrate on limited areas. Special platforms for China-Africa industrial cooperation, agricultural cooperation, technology transference, and cultural and education exchangesare still required under the framework of the Forum. Specifically, we can include the current China-Africa Cooperation and Development Forum in FOCAC, and we can also establish a China-Africa Agricultural Cooperation Forum to integrate relevant agricultural projects. In the future, we still need to build crisis management mechanisms to address potential conflicts as a result of problems of communication and of economic interest, both for Chinese emigrants in Africa and for African emigrants in China, to resolve the negative consequences of failed Chinese enterprises in Africa, and to respond to other emergencies.
Third, the administrative ranking of the Forum should be elevated, and the capabilities of the follow-up committee should be improved. Currently, the political status of the Forum should be elevated to narrow the gap with its international influence, and the coordinating capability of the follow-up committee should be strengthened to improve its functions of integrating domestic resources and international communications.
Finally, Africa’s assertiveness should be promoted. The African side places great importance on and has high expectations of the Forum. However, China has thus far organized and coordinated the ministerial conferences once every three years. Even when held in Africa, the conferences are usually arranged by China. Such a situation is certainly the result of various factors. But Africa, which is growing strong in an independent and unified way, should participate more actively and make joint efforts for the sustainable development of the Forum.
[①] Karim Bathily, “China's Cultural Strategy for Africa: Significance, Perspects and Emerging Challenges (zhongguo dui feizhou de wenhua zhanlue: zhongyaoxing, qianjing yu tiaozhan)”, West Asia and Africa (xiya feizhou), Issue. 5, 2009, p.25.
[②] See Yang Jiechi, “Duo de l’amitié traditionnelle du nouveau partenariat stratégique Chine-Afrique (zhongguo yu feizhou: chuantong youyi yu xinxing zhanlue huoban guanxi de erchongzou)”, Le Matin, 7 Janvier 2010, quoted from FOCAC webside: http://www.focac.org/chn/zfgx/zfgxzzjw/t650733.htm
[③] Interview of Chen Deming, Minister of Commerce of China, with Journalists, available at http://www.focac.org/chn/zfgx/zfgxjmhz/t653601.htm
[④] Ibid.
[⑤] Telegraph in French of Xinhua News Agency in Paris, November 6, 2009.
[⑥] Nayan Chanda, “Black and White: The West is not happy with China’s emergence in Africa, but in reality both the sides have benefited”, Yale Global online, November 10, 2009.
[⑦] See News(Lebanon), November 12, 2009.
[⑧] This is the opinion that a Britain government official delivered at the international conference on “Economic Cooperation and Sustainable China-Africa Relations”, Shanghai Institutes for International Studies (SIIS), March 24-25, 2010.
[⑨] See Yang Jiemian, etc., Proliferation of International Crisis and Sino-U.S. Joint Response(guoji weiji de fanhua yu zhongmei gongtong yingdui), Shishi Publishing House, January 2010, p.1.
[⑩] See Francesco Sisci，”Globalization yet to have its day”, Asia Times online, March 26, 2010.
[11] See Reference News (cankao xiaoxi), December 31, 2009.
[12] See Li Zhibiao, “The Influence of African Union and China-AU Relations”, West Asia and Africa, Issue 3, 2010, p.19.
[13] See Premier Wen Jiabao’s speech at the press conference on March 14, 2010, available at http://www.xinhuanet.com/politics/2010lh/zljzh_index.htm
[14] See China Oil News (zhongguo shiyou bao), April 20, 2010.
