For more than three decades, China has been courting its neighbors to
the south. Enticing the countries of the Association of Southeast Asian Nations
(Asean) into closer cooperation has been a top goal of Chinese foreign policy
since the days of Deng Xiaoping, and it has brought great rewards.
In 2010 the two sides entered
into a free-trade agreement that created one of the world’s largest integrated
markets. But now, with its aggressive attitude on demarcation lines in the
South China Sea, China risks throwing it all away. Why?
Up to about two years ago,
everything, including diplomatic affairs and trade, seemed to be developing
swimmingly between China and its southern neighbors. Even with Vietnam, China’s
opponent in a brief border-war in 1979, relations had improved markedly.
Leaders in Hanoi were looking to Beijing both for advice on how to run a
one-party Communist state and on how to reform its economy into a market-driven
engine of growth. Some Southeast Asian countries with large Chinese minorities
were, for the first time, beginning to see these groups as an opportunity in
dealing with China, rather than as a threat.
Then things changed markedly. At
a 2010 regional forum in Hanoi, the usually equipoised Chinese Foreign Minister
Yang Jiechi fumed at his Southeast Asian hosts for their mutual solidarity and
their perceived attempts to enlist U.S. support in their long-brewing
disagreements over who had sovereignty over portions of the South China Sea.
’Big State’
“There is one basic difference
among us,” Yang is supposed to have said. “China is a big state and you are
smaller countries.” He infuriated not only the Vietnamese, but the truly big
countries that were present, such as Indonesia. I met with a senior Indonesian
policy maker in Jakarta soon afterward. “We are a serious country,” he
bristled. “We will not be treated like this.”
Since then, China’s relations
with Southeast Asia have been sinking fast. There have been clashes at sea
between China and two other South China Sea claimants, Vietnam and the
Philippines. Some countries are looking again at the content of the free-trade
agreement, feeling that it gives China too much influence.
Chinese attempts to use its power
within the weaker Asean countries -- Cambodia and Burma -- to prevent a united
front within the organization have backfired badly. The bigger countries now
suspect that China is out to break up Asean (if given half a chance). In spite
of recent Chinese restraint (at least verbally), relations seem to go from bad
to worse.
What is at stake is not only a
settlement of the disputed claims to zones of maritime control in the South
China Sea (and the rights to exploit the resources that lie beneath them). It
is the whole future relationship between China and the region. Even as the U.S.
is encouraging negotiations and peaceful settlements, it is strengthening its
regional role. Every big Asean country has drawn considerably closer to
Washington over the past year or so. China’s policy has therefore been almost
entirely self-defeating in terms of its long-term interests.
Why is China acting the way it
does? The underwater resources at stake are deemed to be considerable and
crucial to China’s future development.
Nationalist public opinion in
China demands a tough stance on territorial issues, as the conflict with Japan
over the East China Sea islands has also recently shown. There is genuine anger
in Beijing about Asean’s efforts to seek U.S. support and about what is seen as
an unwillingness to negotiate based on China’s demands. Some Chinese naval
officers are bucking to test China’s newly gained capabilities for offshore
naval deployment.
Immature Diplomacy
But at the root of the problem
lies exactly what Yang alluded to in Hanoi. Because of a heritage that goes
back to the deeper past, China regards its position within the region as
unique. It is the big country and other countries must treat it as such. This
does not preclude meaningful negotiations or a respect for the sovereignty of
others. But it does imply a position for China that puts its views and its
claims in a different category than those of other states. Especially in the
long run, it is an attitude that will not serve China well.
China’s approach to Asean on the
South China Sea disputes points to a country whose diplomacy is still
remarkably immature and not ready to take on a regional leadership role. It
does not slowly integrate its neighbors and putative partners into a
cooperative constellation of states that may serve China’s interests and that
also demonstrably serves the interests of others. This is what the U.S. did
with its main allies after World War II. Instead, the PRC’s leaders seem
hell-bound on looking after its own interests and challenging those of its
neighbors, from Korea to Myanmar. This policy will not win China its much
coveted regional role, not to mention a position as a global great power.
China’s demands on the South
China Sea are not even clear. Officially the country claims “historical rights”
over a vaguely defined section of ocean that covers most of the maritime
regions to its south. That claim is often symbolized by a nine- dashed line on
maritime maps, which would -- in effect -- recognize almost all of the South
China Sea as Chinese. This is, to put it mildly, a nonsensical position that
will not stand under international law. Most serious Chinese diplomats know
this (though I am sometimes shocked by how many do not).
The best thing that China could
do now would be to define its actual demands. This would include coming to
terms with the fact that the country, at best, can only lay claim to a 12-
nautical-mile zone around the islets. According to the UN Convention on the Law
of the Sea, small islands that cannot sustain human habitation do not have the
right to a 200 mile exclusive economic zone. So instead of the “right” to all
of the South China Sea, which many Chinese think they claim, the real maximum
demand will be much more modest. This should sober minds in Beijing and
elsewhere.
In the meantime, China and the
other countries should adopt the new Indonesian proposal for an interim
international code of conduct in the South China Sea. It calls for concrete
confidence building and conflict prevention measures, including a reduction of
military activity in the region. For the time being, that may be as close to
calm as we can get within these troubled waters.
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