Beijing understands that only through a more proactive policy can China expand from a solely land-based power to a maritime power and reshape the region in a manner beneficial to its security interests. Failure to do so could enable other regional states and their allies, namely the United States, to contain or even threaten China's ambitions.
At least four elements of Deng's policies are currently under debate or changing: a shift from noninterference to creative involvement; a shift from bilateral to multilateral diplomacy; a shift from reactive to preventative diplomacy; and a move away from strict nonalignment toward semi-alliances.
Creative involvement is described as a way for China to be more active in preserving its interests abroad by becoming more involved in other countries' domestic politics -- a shift from noninterference to something more flexible. China has used money and other tools to shape domestic developments in other countries in the past, but an official change in policy would necessitate deeper Chinese involvement in local affairs. However, this would undermine China's attempts to promote the idea that it is just another developing nation helping other developing nations in the face of Western imperialism and hegemony. This shift in perception could erode some of China's advantage in dealing with developing nations since it has relied on promises of political noninterference as a counter to Western offers of better technology or more development resources that come with requirements of political change.
China has long relied on bilateral relations as its preferred method of managing its interests internationally. When China has operated within a multilateral forum, it has often shaped developments only by being a spoiler rather than a leader. For example, China can block sanctions in the U.N. Security Council but has rarely proffered a different path for the international community to pursue. Particularly through the 1990s, Beijing feared its relatively weak position left it little to gain from multilateral forums, and instead put China under the influence of the stronger members. But China's rising economic power has shifted this equation.
China is pursuing more multilateral relationships as a way to secure its interests through the larger groups. China's relations with the Association of Southeast Asian Nations, its participation in the Shanghai Cooperation Organization and its pursuit of trilateral summits are all intended to help Beijing shape the policy direction of these blocs. By shifting to the multilateral approach, China can make some of the weaker countries feel more secure and thus prevent them from turning to the United States for support.
Traditionally, China has had a relatively reactive foreign policy, dealing with crises when they emerge but often failing to recognize or act to prevent the crises before they materialize. In places where Beijing has sought access to natural resources, it has often been caught off-guard by changes in the local situation and not had a response strategy prepared. (The division of Sudan and South Sudan is one recent example). Now, China is debating shifting this policy to one where it seeks to better understand the underlying forces and issues that could emerge into conflict and act alone or with the international community to defuse volatile situations. In the South China Sea, this would mean clarifying its maritime claims rather than continuing to use the vague nine-dash line and also more aggressively pursuing ideas for an Asian security mechanism, one in which China would play an active leadership role.
China's stance on alliances remains the same as that put forward by Deng in the 1980s: It does not engage in alliance structures targeted against third countries. This was both to allow China to retain an independent foreign policy stance and to avoid international entanglements due to its alliances with others. For example, Chinese plans to retake Taiwan were scuttled by its involvement in the Korean War, and thus its relations with the United States were set back by decades. The collapse of the Cold War system and the rise of China's economic and military influence have brought this policy under scrutiny as well. Beijing has watched cautiously as NATO has expanded eastward and as the United States has strengthened its military alliances in the Asia-Pacific region. Beijing's non-alliance policy leaves China potentially facing these groups alone, something it has neither the military nor the economic strength to effectively counter.
The proposed semi-alliance structure is designed to counter this weakness while not leaving China beholden to its semi-alliance partners. China's push for strategic partnerships (even with its ostensible rivals) and increased military and humanitarian disaster drills with other nations are part of this strategy. The strategy is less about building an alliance structure against the United States than it is about breaking down the alliance structures that could be built against China by getting closer to traditional U.S. partners, making them less willing to take strong actions against China. In its maritime strategy, Beijing is working with India, Japan and Korea in counterpiracy operations and engaging in more naval exchanges and offers of joint exercises and drills.
Looking Forward
China's world is changing. Its emergence as a major economic power has forced Beijing to rethink its traditional foreign policy. Closest to home, the South China Sea issue is a microcosm of China's broader foreign policy debate. The ambiguity of China's maritime claim was useful when the region was quiet, but it is no longer serving China's purposes, and coupled with the natural expansion of China's maritime interests and naval activity it is instead exacerbating tensions. Old policy tools such as trying to keep all negotiations bilateral or claiming a hands-off approach are no longer serving China's needs. The policy of joint development inherited from Deng has failed to bring about any significant cooperation with neighboring countries in the sea, and the assertion of the nine-dash line claims amid the U.N. sea treaty filings has simultaneously increased domestic Chinese nationalism and countermoves by neighboring countries.
Despite the lack of clarity on its maritime policy, China has demonstrated its intent to further consolidate its claims based on the nine-dash line. Beijing recognizes that policy changes are needed, but any change has its attendant consequences. The path of transition is fraught with danger, from disgruntled domestic elements to aggressive reactions by China's neighbors, but by intent or by default, change is happening, and how the foreign policy debate plays out will have lasting consequences for China's maritime strategy and its international position as a whole.
