U.S.-China relations have now entered into a new structural phase. Officially, the Americans describe this as a change from 40 years of “strategic engagement” to a new period of “strategic competition.” The precise definition of strategic competition, as an operational rather than a declaratory strategy, has yet to fully emerge. But we would be foolish not to recognize that there has been a fundamental systemic shift in U.S.
sentiment toward China
This chapter draws a rough sketch of the evolution of Chinese views on Korean history in the Cold War era in three parts. The first focuses on the formulation of Chinese views of the Korean War in 1950 and the mainstream assessment of the war after Sino-South Korean diplomatic normalization in 1992. The second focuses on China’s attitudes and policies toward the two Koreas in the Cold War years. The third deals with the changes and limits of perceptions on Korean history after diplomatic normalization and their impact on bilateral relations between Beijing and Seoul.
For centuries many Chinese have firmly believed that the relationship between China and the Korean Peninsula is like that between lips and teeth, they are not only close to but also dependent upon each other. If the lips are gone, the teeth will be cold. From the middle of nineteenth century, the geopolitical proximity and interdependence between the two have become the determining factors in formulating Chinese perceptions towards Korea. Since then the national security concerns symbolized by the sense of lips and teeth had been frequently stressed by some Chinese intellectuals and officials when both China and Korea were exposed to the growing imperialist expansion and geopolitical competition in East Asia. In order to maintain the traditional tributary relationship between China and Korea, China fought the first Sino-Japanese War in 1894-95. Although it was miserably defeated, and Korea was consequently annexed to the Japanese empire in 1910, the Chinese sense of lips and teeth remained undiminished. Rather, it was further strengthened among ordinary Chinese when the Cold War began and especially when the Korean War broke out in 1950.
After the end of World War II, China faced a new situation on the peninsula. Korea was liberated from Japanese rule but soon divided into the Soviet backed socialist North Korea, the Democratic People’s Republic of Korea (DPRK), and the U.S. backed capitalist South Korea, the Republic of Korea (ROK). As a newly established socialist country, China naturally allied itself with the Soviet Union and viewed the DPRK as a close friend while regarding the United States and ROK as hated foes. The intensified Cold War confrontation between the two camps and two Koreas triggered the outbreak of the Korean War. In order to safeguard its own political, ideological, and security interests, China quickly got involved in the war by sending the Chinese People’s Volunteer Army (CPVA) to fight together with its DPRK friend against their common enemies. The war ended with a cease-fire armistice and created a friend and foe Cold War framework, which the new China was compelled to face even beyond the Cold War era. Under these circumstances, the majority of Chinese held the view that it was the capitalist enemy rather than the socialist friend who started the Korean War with a view to overthrowing not only the socialist government in Pyongyang but also the similar one in Beijing. Therefore, it was against this background that China’s attitudes and policies toward the two Koreas in the post-Korean War era were doomed to be ideologydriven and DPRK sympathetic.
Topic:
Foreign Policy, Cold War, History, and Public Opinion
In July 2014, Ambassador Qiu Guohong in preparation for Xi Jinping’s visit to Seoul stated that the “relationship between South Korea and China couldn’t be any better.”1 Among the many reasons for this—economic, geostrategic, cultural—was a shared sense of history. China and Korea, officials and commentators in both nations claimed, were close because of their agreement regarding the significance of their experiences as victims of foreign, particularly Japanese, imperialism in the 19th and 20th centuries.
History, that constellation of memories, stories, and notions about the past, has often been deployed to reinforce conceptions of identity, to support certain courses of action, and to demarcate between the in-group and the other. But history is ever malleable and protean. Not only do individuals, institutions, and ideas change but so does the understanding of them. When one draws on the past, one inevitably focuses on a limited set of events or narratives that best serve one’s interests—to the exclusion of potentially equally valid candidates. Their utility can vary over time; one need only think of how figures such as Zheng He or Confucius have been imagined and re-imagined over the last century.
This has been the case with the history of relations between China and Korea from the latenineteenth to the mid-twentieth centuries. For many Chinese, Korea has served first as a subject of contestation as China’s position in Korea was challenged by both Western and Japanese powers. Then, when it became increasingly clear that China (or the Qing Empire) was losing this contest, Korea became an omen of China’s own fate absent significant course changes. As Japan’s growing empire engulfed Korea and subsequently threatened parts of China, resistance served to bring China and Korea closer; many in China celebrated what they saw as courageous resistance to Japan—such as when An Chunggun assassinated Ito Hirobumi in 1909. Shared status as victims of Japanese imperialism in an age of “humiliation” brought the two closer, and the mutually shared memory of “humiliation” has been deployed by contemporary Chinese and South Korean leaders—Xi Jinping and Park Geun-hye—to foster greater levels of cooperation.
However, past conceptions of China, Korea, and the Sino-Korean relationship have sometimes ranged far afield from the cherished tropes of humiliation and the struggle for independence. Even seemingly universally agreed upon symbols, such as An’s heroic 1909 assassination, find themselves subject to changing interpretations such as recent emphasis by some on his pan-Asian vision of Sino-Korean-Japanese cooperation rather than his bold anti-Japanese act. As interests and priorities change, so does the utility of any particular historical narrative.
Topic:
International Relations, History, and Bilateral Relations
In the tradition of imperial China and communism, Chinese publications see history as a morality tale. In the case of Korean history to the late decades of the nineteenth century there are essentially three actors: virtuous China, evil Japan, and variable Korea. There are three critical periods which receive the bulk of attention: the 7th century, the late 16th century trailing into the 17th century change of dynasty in China, and the last decades of the 19th century. The narrative advances the notion of competing visions of regional order, contrasting Chinese and Japanese frameworks and examining Korean policies in light of the choices made between these options.
Official Chinese narratives couch today’s opportunities in historical context. A battle rages between socialism and capitalism, offering China a unique prospect to tip the balance. This is not only a present-day challenge; it is a struggle over consciousness of history—a campaign against “historical nihilism” that disagrees with orthodoxy in support of communist party legitimacy and the rectitude of Chinese civilization. A speech given by Xi Jinping in July 2010 at the Central Party School and only recently made available leaves no doubt about the tight censorship imposed on publications about history. South Korea’s history is especially sensitive as the poster-child for the benevolence of the imperial Chinese regional order, the battleground for the key war fought by China to maintain its surroundings against capitalist encroachment, and a chief testing grounds for the rejuvenation of China against U.S. hegemonism and Western civilization. Premodern history is an inseparable part of this agenda.
Topic:
Foreign Policy, Imperialism, History, and Narrative
The way Chinese officials and writers view the history of Korea—from ancient times to the post- Cold War developments in South Korea—matters for at least three reasons. It is a commentary on Chinese national identity since Korea bears importantly on multiple dimensions of how that identity has recently been constructed. It is likewise a window on how Chinese view the order they seek to forge in East Asia, linking it to the earlier Sinocentric order. Finally, Chinese views of Korea’s history offer valuable insight into China’s vision of the future of the Korean Peninsula and its relationship to China. It is commonplace to regard historical narrative as a lens on views of the present and plans for future policies, but this is even more the case for a country with the tradition of Confucian historiography with its extraordinary stress on correct thinking about the past, and communist historiography redolent with socialist realism insistent on a zero-sum understanding of the past. We read in Chinese historical writings on Korea a morality tale with undoubted relevance to how China constructs both its identity and its international relations.
The Korean Peninsula has significance for Chinese national identity beyond that of any foreign country except Russia and the United States with the possible exception of Japan. It is where ideology was honed as China sent the PLA to prevent the fall of North Korea after Mao had given his blessing along with Stalin to the North’s attack on the South. As ideology has grown again in importance, the significance of North Korea’s socialist pedigree and shared origins in the crucible of revolution against imperialism has risen. In the historical dimension of national identity, China’s leaders in the 1990s weighed allowing candor about the origins of the Korean War at a time when de-ideologization was fitfully taking place and there was no established narrative on history. Some saw sensitivity to North Korean reactions as the key to why China did not go further, but the resistance inside China proved more tenacious than they assumed. Historical purity toward Japan intensified apart from a short-lived interval with “new thinking” in 2003. With South Korea on the frontlines in China’s quest for demonization of Japan over history, its own history became a test case for the national identity gap between it and China. The history of Korea is so interwoven with that of China and it can reveal much about recent views.
Pertinent literature abounds on how East Asian states have struggled to position themselves vis-à-vis a rising China over the past two decades. Due to its geographical proximity and cultural similarities with China, as well as its strategic importance to both the United States and China, South Korea’s tightrope-walking has been more pronounced than anyone else’s.1 Given the crucial strategic issues regarding U.S.-China relations and the North Korean conundrum, how the Seoul-Beijing relationship is to evolve undoubtedly constitutes a key variable in regional security dynamics. This chapter asks what is Seoul’s recipe for dealing with a China that is becoming more “assertive,” examining its changing strategic and diplomatic stance over the years of the Park Geun-hye administration and the first year of the Moon Jae-in government.
Of the six sections, the first offers a brief overview of the complex relationship since diplomatic normalization in 1992. The second outlines key features of an era of overoptimism during the first three years of the Park administration (2013-15). The third delves into the issue of THAAD (terminal high-altitude area defense) deployment and how that utterly shattered the Park-Xi honeymoon in 2016. The fourth offers a discussion on China’s narrowly-focused sanctions during 2016-17. The fifth is devoted to the first year of the Moon administration, focusing on envoy politics, the “three-noes controversy,” and Moon’s state visit to China. The final section provides concluding assessments of the factors critical in shaping Moon’s policy toward China and where the room for mending relations remains.
Topic:
Geopolitics, Strategic Planning, and Regional Politics
In the last two decades, bilateral and regional trade agreements (RTAs) have been considered a primary force to advance the world trading system because the Doha Development Agenda of the WTO has stagnated since its launch in 2001. The continuous expansion of the European Union and the American-led NAFTA and TPP as well as bilateral FTAs between the United States and EU and their partners best exemplified this phenomenon. However, such an approach is facing serious challenges from rising anti-globalization sentiment originating in the EU and United States in recent years. In June 2016, the United Kingdom decided to exit the EU as a result of a referendum. This is the first time a EU member chose to leave. On January 23, 2017, at the start of his presidency, Donald Trump signed as his first executive order the withdrawal from TPP, which his predecessor spent years concluding with 11 partners. These two consecutive dramatic actions of the previous and current world leaders shocked the globe. Next to the WTO, regionalism is seen as the second-best choice in promoting globalization. Now, two regional initiatives led by developed countries are facing a serious backlash. The world is concerned that this means the end and a reversal of globalization.
Since its WTO accession in 2001, China has also been actively negotiating FTAs with its neighbors as well as some remote partners such as Iceland and New Zealand. While its WTO accession package was praised for its ambition and courage, it is difficult to defend Chinese FTAs as comparable to those of developed countries in terms of market access and institutional changes. One explanation for that is China has made very high-level multilateral commitments. Another one is China is not in such a comfortable strategic and economic position as the United States in negotiating FTAs with either developed or developing countries. The former want to obtain more market access concessions and institutional reforms from China, while the latter are afraid to expose their domestic industries to China’s overwhelming competitiveness in manufacturing. In addition, the Chinese government seems more confident in its own institutions and unwilling to change them due to outside pressure, especially after the 2008 global financial crisis.
President Xi Jinping proposed the Belt and Road Initiative (BRI) during his state visits to Kazakhstan and Indonesia in September and October 2013, which soon was made a top national priority and even included in the Constitution of the Communist Party of China at the 19th Party Congress in 2017. Nadege Rolland labels this China’s Grand Strategy1 and the organizing foreign policy concept in the Xi Jinping era.2 One key feature of BRI in comparison with RTAs is that BRI focuses more on improving physical connectivity rather than reducing institutional barriers. The logic of physical connectivity is undoubtedly powerful, especially for developing countries with poor infrastructure. The impact of more and better international links on the regional landscape could be huge, not only by boosting trade and commerce but also by easing flows of energy and other resources, stimulating technological innovation, influencing culture and politics, and shaping strategic choices. Given the fact that RTAs are facing serious difficulties, the BRI looks like an attractive and feasible alternative to promote regional economic integration and globalization. However, there are also plenty of uncertainties and ambiguities surrounding the BRI, particularly due to China’s centrality as well as its direction of economic and strategic development. Hence, this chapter explores BRI characteristics in promoting regional economic integration and whether it could become an alternative approach to regionalism and globalization for China as well as the world.
Topic:
Foreign Policy, Treaties and Agreements, Belt and Road Initiative (BRI), Trade, and Regional Economy
Since being applied to U.S.-Soviet-China trilateral relations after the Sino-American rapprochement in the early 1970s, the notion/theory of “strategic triangles” has been widely used to examine many trilateral relations. The model of “U.S.-China plus one” is popular among students of U.S.-China relations and, consequently, the policy community has witnessed an increasing amount of scholarship on triangles among U.S.-China-India, U.S.-China-Japan, U.S.-China-Russia, and even U.S.-China-Taiwan. Unsurprisingly, this begs the question whether a strategic triangle could be construed and constructed among the United States, China, and South Korea. Generally speaking, despite the trilateral nature of U.S.-China-ROK relations, the Chinese policy community rarely subscribes to the existence of a strategic triangle among the U.S., China, and South Korea. This is not necessarily because South Korea does not carry the same strategic weight as the two great powers, but more importantly is because China does not see South Korea as possessing the strategic autonomy to act as an independent player in the trilateral relations. Although arguably such autonomy might exist in economic and trade relations, on key political and security issues, the Chinese see South Korea as invariably constrained by the U.S.-ROK military alliance and unable to form its own independent national security policy.
In writing about the post-Cold War period with an emphasis on geopolitics, Chinese authors do not often treat South Korean policy or Sino-ROK relations as autonomous. Given the great weight given to the U.S. role, it is important, therefore, to take a triangular approach in assessing these writings centered on South Korea. I do so first explaining in more detail why the “strategic triangle” framework does not apply, then examining views on how this triangle has evolved in a period of rising Chinese power relative to U.S. power and fluctuating U.S.-ROK relations as the leadership in Seoul changed hands, and finally returning to the triangular theme to grasp how this shapes China’s understanding of Seoul’s policies with emphasis on the ongoing Moon Jae-in era.
Topic:
International Relations, Foreign Policy, Geopolitics, Economy, and Trade
EGMONT - The Royal Institute for International Relations
Abstract:
China’s 19th Party Congress unexpectedly amended the party’s constitution with a pledge to “pursue the Belt and Road Initiative”. This further elevates the status of president Xi’s heavily promoted foreign policy, which aims at creating trade and investment opportunities through the development of Eurasia’s continental and maritime infrastructure. As the implications of this policy are increasingly felt across Europe, following years of growing Chinese investments, so are the challenges it presents to Europe’s unity, prosperity and security. In light of these challenges a constructive engagement with China’s Belt and Road Initiative (BRI) constitutes an immense task for the European Union, whose position has been weakened by growing dissent among member states over the Union’s policy towards China.