Anshan_ChinaandAfrica
Pré-visualização8 páginas
China and Africa: Policy and Challenges* Fifteen years ago, in an article entitled \u201cChina and Africa,\u201d Gerald Segal pre- dicted that China, as a rising global power, would be more important to Africa than vice versa \u2013 he even surmised that Africa would be the region of least impor- tance to China\u2019s foreign policy.1 A look at current Sino-African relations clearly refutes Segal\u2019s prophesies. In fact, Africa is very important to China. In January 2006, China\u2019s African Policy, the white paper promulgated by the Chinese govern- PHQW\ufffdZDV\ufffd WKH\ufffdÀUVW\ufffd RI\ufffd LWV\ufffd NLQG\ufffd LQ\ufffd&KLQD·V\ufffd GLSORPDWLF\ufffdKLVWRU\\ufffdZLWK\ufffd$IULFD\ufffd\ufffd7KLV\ufffd document embodies a comprehensive and long-term plan for enhanced coopera- tion in Sino-Africa relations, and it marks a milestone in the progress that China and Africa have made together. A popular perception in the international community is that the recent rapid developments of the Sino-African relationship have arisen after a long, dormant period, revealing China\u2019s new and potentially unsettling ambitions in Africa. Many Western scholars opine that China neglected Africa in practice in the past China Security Vol. 3 No. 3 Summer 2007 China Security, Vol. 3 No. 3 Summer 2007, pp. 69 - 93 2007 World Security Institute Li Anshan is professor at the School of International Studies, Peking University and the as- sociate director of the Chinese Society for African History Studies. He has published Research of African Nationalism as well as other books. Li Anshan 69 30 years, and that its recent comprehensive engagement with the region not only UHÁHFWV\ufffdD\ufffdVHW\ufffdRI\ufffdDPELWLRXV\ufffdDQG\ufffdXQVHWWOLQJ\ufffdJRDOV\ufffdRQ\ufffdWKH\ufffdFRQWLQHQW\ufffdEXW\ufffdWKDW\ufffdD\ufffdFRP- petitive quest for energy, trade and geopolitical interests will underscore that agenda.2 Such viewpoints stress practical aspects of China\u2019s policy toward Africa, but fail to convey the most important element in Sino-African relations: that the de- velopment of the relationship over the past 50 years has been based on \u201cequal treatment, respect for sovereignty and common development.\u201d3 Despite many shifts in the interactions between China and Africa, certain principles have re- PDLQHG\ufffd FRQVWDQW\ufffd\ufffd XQGHUSLQQLQJ\ufffd WKH\ufffd UHODWLRQVKLS\ufffd\ufffd 7R\ufffd DFFXUDWHO\\ufffd MXGJH\ufffd &KLQD·V\ufffd strategic considerations in the Sino-Africa relationship, it is important to under- stand both aspects of continuity and change in China\u2019s policy towards Africa. Transitions Sino-African Relations are not new \u2013 dating back to ancient times and pro- gressing gradually based on common historical experiences.4 However, it wasn\u2019t XQWLO\ufffd\ufffd\ufffd\ufffd\ufffd\ufffd\ufffdZKHQ\ufffd(J\SW\ufffdEHFDPH\ufffdWKH\ufffdÀUVW\ufffd$IULFDQ\ufffdQDWLRQ\ufffdWR\ufffdHVWDEOLVK\ufffdGLSORPDWLF\ufffd relations with the People\u2019s Republic of China (P.R.C.), that inter-governmental relations between the P.R.C. and African countries were inaugurated. Over the VXEVHTXHQW\ufffdKDOI\ufffdFHQWXU\\ufffd\ufffdWKH\ufffdWUDMHFWRU\\ufffdRI\ufffd6LQR\ufffd$IULFDQ\ufffdUHODWLRQV\ufffdZHQW\ufffdWKURXJK\ufffd several fundamental shifts. Ideological Beginnings From the establishment of the P.R.C. to its economic opening (1949-1978), &KLQD·V\ufffd $IULFD\ufffd SROLF\\ufffdZDV\ufffd KHDYLO\\ufffd LQÁXHQFHG\ufffd E\\ufffd LGHRORJ\\ufffd\ufffd 'XULQJ\ufffd WKLV\ufffd SHULRG\ufffd\ufffd China\u2019s foreign policy was deeply impacted by the unique international environ- ment of the time.5 China placed itself on the front line of the struggle against FRORQLDOLVP\ufffd\ufffdLPSHULDOLVP\ufffdDQG\ufffdUHYLVLRQLVP\ufffdLQ\ufffdWKH\ufffd7KLUG\ufffd:RUOG\ufffd6 By linking its ide- ological stand with its foreign policy, China\u2019s diplomacy in Africa was initially FLUFXPVFULEHG\ufffdE\\ufffd%HLMLQJ·V\ufffdLGHRORJLFDO\ufffdSRVLWLRQ\ufffd7 In the wake of the Sino-Soviet split in the 1960s, China accused the pro-Soviet communist parties in various Policy and Challenges China Security Vol. 3 No. 3 Summer 200770 African countries of \u201crevisionism,\u201d regarding them as ideological rivals. Based on this political bias, China refused requests by some African nations to establish diplomatic relations.8 All ties between the Communist Party of China (CPC) and pro-Soviet political parties in Africa were severed. Although the political atmosphere dramatically changed in China during the mid-1960s, a dogmatic approach was maintained in relations with Africa. At the beginning of the Cultural Revolution, China\u2019s diplomacy was affected by an ul- tra-leftist mentality. Some scholars have described China\u2019s aims in Africa at that time as promoting Maoism.9\ufffd 7KH\ufffd VORJDQ\ufffd ´H[SRUWLQJ\ufffd UHYROXWLRQµ\ufffd EH- FDPH\ufffdWKH\ufffdSULPDU\\ufffdREMHFWLYH\ufffdWRZDUG\ufffd$IULFD\ufffd\ufffdZKLFK\ufffd was challenged by African countries on the re- FHLYLQJ\ufffdHQG\ufffd\ufffd7KLV\ufffdFDPSDLJQ\ufffdWKUHDWHQHG\ufffdWKH\ufffdSRZHU\ufffdDQG\ufffdSRVLWLRQ\ufffdRI\ufffdPDQ\\ufffd$IULFDQ\ufffd governments and deviated from the principle of \u201cnon-interference in internal af- fairs.\u201d10\ufffd7KXV\ufffd\ufffdRQO\\ufffdD\ufffdKDQGIXO\ufffdRI\ufffdJURXSV\ufffdLQ\ufffd$IULFD\ufffd\ufffdIRU\ufffdH[DPSOH\ufffdWKH\ufffd(WKLRSLDQ\ufffd3HR- ple\u2019s Revolutionary Party) sustained contact with the CPC. In the end of 1960s, China ended its policy of \u201cexporting revolution\u201d and started to provide more aid to Africa that was \u201cfree and unconditional.\u201d As a result, the broad-based relation- ship between China and Africa gradually recovered.11 Using free aid as the basis to build bilateral relations was an approach largely formulated in 1963-64, when Premier Zhou Enlai visited Africa and proposed the Five Principles Governing the Development of Relations with Arab and African Countries and the Eight Principles of Economic Assistance.12 During this period, China supported the political struggles for African independence as well as provided some free aid to Africa.13 It was a time when China also helped African countries build a number RI\ufffdODQGPDUN\ufffdVWUXFWXUHV\ufffd\ufffdH\ufffdJ\ufffd\ufffdVWDGLXPV\ufffd\ufffdKRVSLWDOV\ufffd\ufffdFRQIHUHQFH\ufffdFHQWHUV\ufffd\ufffd²\ufffdSURMHFWV\ufffd WKDW\ufffdZHUH\ufffdPRUH\ufffdWKDQ\ufffdMXVW\ufffdEULFNV\ufffdDQG\ufffdPRUWDU\ufffdFRQVWUXFWLRQV\ufffd²\ufffdWKDW\ufffdZHUH\ufffdQDWLRQDO\ufffd symbols of independence and embodied the spirit of cultural decolonization.14 7KHVH\ufffd&KLQD\ufffdVXSSRUWHG\ufffdSURMHFWV\ufffd SOD\HG\ufffd DQ\ufffd LPSRUWDQW\ufffd UROH\ufffd LQ\ufffd WKH\ufffd IRUPDWLRQ\ufffd RI\ufffd African nationhood.15\ufffd'HVSLWH\ufffdYHU\\ufffdKLJK\ufffdHFRQRPLF\ufffdFRVWV\ufffd\ufffdWKHVH\ufffdSURMHFWV\ufffdSURYLGHG\ufffd Li Anshan China Security Vol. 3 No. 3 Summer 2007 71 China sought Africa as an ally in its struggles against imperialism and hegemony. important assistance to African countries in need of moral support, and also re- sulted in positive impressions of China in the minds of the African people, laying a solid foundation for the path ahead in Sino-African relations.16 By 1978, China had established diplomatic relations with 43 African countries. 'LYHUVLÀFDWLRQ 7KH\ufffdHQG\ufffdRI\ufffdWKH\ufffd&XOWXUDO\ufffd5HYROXWLRQ\ufffdPDUNHG\ufffdD\ufffdVKLIW\ufffdLQ\ufffd&KLQD·V\ufffdSROLF\\ufffdWRZDUG\ufffd Africa from one based almost exclusively on ideological alliance to one with a far PRUH\ufffdSUDJPDWLF\ufffdDQG\ufffdGLYHUVLÀHG\ufffdDSSURDFK\ufffd\ufffd With a new political direction and the uncertainty of economic development LQ\ufffd&KLQD\ufffd\ufffdWKH\ufffdSHULRG\ufffdIURP\ufffd\ufffd\ufffd\ufffd\ufffd\ufffd\ufffd\ufffd\ufffd\ufffd\ufffdVDZ\ufffdD\ufffdWHPSRUDU\\ufffdÁXFWXDWLRQ\ufffdLQ\ufffd6LQR\ufffd$IULFDQ\ufffd relations: economic aid was reduced, accompanied by a decline in bilateral trade and a drop in the number of mission medical teams.17\ufffd7KH\ufffd\ufffd\ufffdth CPC National As- VHPEO\\ufffdLQ\ufffd\ufffd\ufffd\ufffd\ufffd\ufffdRIÀFLDOO\\ufffdPDUNHG\ufffdD\ufffdVKLIW\ufffdIURP\ufffdD\ufffdSROLF\\ufffdWKDW\ufffdHPSKDVL]HG\ufffd´ZDU\ufffdDQG\ufffd revolution\u201d to one emphasizing \u201cpeace and development.\u201d Likewise, China shift- ed from policies that emphasized that \u201ceconomy serves diplomacy\u201d to policies based on \u201cdiplomacy serves the economy.\u201d In the same year, the Chinese premier visited Africa and announced the Four Principles on Economic and Technological Coop- eration with Africa.18\ufffd7KLV\ufffdVKLIWHG\ufffdWKH\ufffdIRFXV\ufffdWR\ufffdSUDFWLFDO\ufffdHIIHFWLYHQHVV\ufffdLQ\ufffdDVVLVWDQFH\ufffd and in relations more generally, as well as to a spirit of \u201cdeveloping together.\u201d \ufffd7KH\ufffd\ufffd\ufffdth CPC Assembly decided on two strategic elements that had implica- WLRQV\ufffdIRU\ufffd&KLQD·V\ufffdSROLF\\ufffdWRZDUG\ufffd$IULFD\ufffd\ufffdWKH\ufffdÀUVW\ufffdWKDW\ufffdWKH\ufffdFRXQWU\\ufffdZRXOG\ufffdHPSKD- size Chinese domestic economic development; and the second that China would pursue a peaceful and independent foreign policy.19\ufffd7KHVH\ufffdZHUH\ufffdUHOHYDQW\ufffdWR\ufffd$IULFD\ufffd in that China sought to bring the relationship down to earth and base it on very SUDFWLFDO\ufffdJRDOV\ufffdWKDW\ufffdZHUH\ufffdZLWKLQ\ufffdLWV\ufffdPHDQV\ufffd\ufffd7KH\ufffd\ufffd\ufffdth CPC National Assembly es- tablished principles