June 6, 2013
In February 1972, Richard Nixon went to China and restored Sino- U.S. relations that had been broken for 23 years. During that visit, Nixon held a series of critical meetings with China’s premier, Zhou Enlai, and they discussed the broad strategic framework that would guide bilateral relations. President Obama’s meetings with President Xi Jinping this weekend have the potential to be a similarly historic summit – but with an important caveat.
China has always played a weak hand brilliantly. When Mao Zedong and Zhou met with Nixon and Henry Kissinger, China was in the midst of economic, political and cultural chaos. Its per capita gross domestic product had fallen below that of Uganda and Sierra Leone. Yet Beijing negotiated as if from commanding heights. Today, it has tremendous assets – but it is not the world’s other superpower, and we should not treat it as such.
The United States has been accused of having a confused, contradictory foreign policy, as each administration reverses its predecessor. This is often a mischaracterization, never more so than with China policy. Since Nixon and Kissinger opened the door, U.S. foreign policy toward China has been remarkably consistent over 40 years and eight presidents. Washington has sought to integrate China into the world, economically and politically. This policy has been good for the United States, good for the world and extremely good for China.
But many of the forces that pushed the two countries together are waning. For the first two decades of relations, Washington had strategic reasons to align with Beijing and shift the balance of power against the Soviet Union. While China was in its early years of development, it desperately needed access to U.S. capital, technology and political assistance to expand its economy. Today, China is much stronger and is acting in ways – from cyberattacks to its policies in Africa – that are counter to U.S. interests and values. For its part, Washington must respond to the realities of Asia, where its historic allies are nervous about China’s rise.
That’s why the meetings between Obama and Xi are important. Both countries need to take a clear-eyed look at the relationship and find a new path that could define a cooperative framework for the future, as Nixon and Zhou did in 1972. Both sides should seek to create a broad atmosphere of trust rather than to work through a “to-do” list.
Some Americans want to see these meetings as a “G-2” alliance of sorts between the world’s largest economies. That would not serve U.S. interests nor those of broader global stability and integration.
China is the world’s second-largest economy and, because of its size, will one day become the largest. (On a per-capita basis, it is a middle-income country, and it might never surpass the United States in that regard.) But power is defined along many dimensions, and by most political, military, strategic and cultural measures, China is a great but not global power. For now, it lacks the intellectual ambition to set the global agenda.
The scholar David Shambaugh, who has always been well-disposed toward China, put it this way in a recent book: “China is, in essence, a very narrow-minded, self-interested, realist state, seeking only to maximize its own national interests and power. It cares little for global governance and enforcing global standards of behavior (except its much-vaunted doctrine of noninterference in the internal affairs of countries). Its economic policies are mercantilist and its diplomacy is passive. China is also a lonely strategic power, with no allies and experiencing distrust and strained relationships with much of the world.”
Beijing wants good relations with the United States and a general climate of external stability. That’s partly because it faces huge internal challenges. Chinese leaders want to embark on serious reform at home (described as “rectification”) and are searching for a way to generate greater legitimacy for the Communist Party, experimenting with both a return to Maoist rhetoric and a revival of nationalism. Beijing wants to rise without creating a powerful anti- Chinese backlash among Asia’s other powers.
The United States should seek good and deep relations with China. They would mean a more stable, prosperous and peaceful world. Further integrating China into an open global system would help maintain that system and the open world economy that rests on it. But this can happen only if China recognizes and respects that system and operates from the perspective of a global power and not that of a “narrow-minded” state seeking only to maximize its interests.
In other words, when China starts acting like a superpower, we should treat it like one.