Making the Right Choices China-U.S. Relations at a Critical Point

cui tiankai Ambassador of the People’s Republic of China to the United States

The following piece was adapted by the author from remarks that he delivered at the Brookings U.S.-China Leadership Forum at Sunnylands in Rancho Mirage, California, on May 8, 2016.

t is a real pleasure to come to Sunnylands before. While our cooperation is expanding and Iagain. There is no better place in America to deepening, our differences stand out more and host this forum. Three years ago next month, more. While there is growing evidence that our our leaders, President Xi and President Obama, two countries are increasingly connected to each had their first presidential meeting here. It was other, there are also mounting worries that we the beginning of a new model of presidential dia- might eventually clash. logue, one with less formality and fewer aides but greater candor and a clearer focus on issues of This is, I believe, partly because of the inherent strategic importance. Such top-level communica- complexities of the relationship, and partly be- tion has now become a prominent feature of our cause fundamental changes in the global polit- relationship, from Sunnylands to Yingtai, from ical and economic structure have made these the Blair House to the recent Nuclear Security complexities even more complicated and have Summit. It has enabled our leaders to build up a magnified their impact. good mutual understanding not only of priorities and policies, but also of each other as people. Therefore, the China-U.S. relationship today is probably at another defining moment. How we Thanks to the strong guidance of our two pres- define and direct it now will have far-reaching idents and the joint efforts of both sides, the consequences. Both countries have a big stake China-U.S. relationship in the last three years in the choices we are going to make. Whether or has withstood one test after another and has not we will be able to make the right choices de- by and large moved forward on a positive and pends on a few key factors. stable track. Today, our bilateral cooperation is more extensive and comprehensive than what is First, it will depend on our vision of the world to- usually reported in the media. The relationship day. Do we see a world in which great powers can is stronger and more resilient than many people and should coexist and cooperate with one an- have realized. other, or do we see it as a place of inherent con- flict among those powers? Do we embrace the At the same time, this relationship now seems opportunities for win-win cooperation, or do we to be more difficult to manage than ever believe in the inevitability of a zero-sum game?

Making the Right Choices: China-U.S. Relations at a Critical Point 1 Do we base our policies on full recognition of 21st the U.S. position in the world. And there are peo- century global challenges with a view to partner- ple in China who think that everything the United ship and community building, or do we still see States does is intended to contain China. I be- everything through the lens of “allies versus ri- lieve that both groups are wrong because nei- vals”? ther has come to recognize that, when it comes to policymaking in countries like China and the Actually, the case for great-power partnership United States, there are always many variables and global community building is now stronger in the equation. than ever. We are all faced with tremendous global challenges: climate change, disease, natu- For China, the top priority is to accomplish eco- ral disasters, terrorism, poverty, energy security, nomic, social, and political transformation for the food security, financial instability, and so on. On modernization of the country. Its most important the positive side, all major powers are now mem- tasks are domestic and its foreign policy is first bers of key international institutions such as the and foremost aimed at preserving a peaceful United Nations, the World Bank, the International external environment. Naturally, as China devel- Monetary Fund, and the World Trade Organiza- ops and integrates more deeply with the rest of tion. We are also working together in new global the world, it will have more interests to attend governance mechanisms such as the G20. All of to beyond its borders and greater international this means that the major powers are committed responsibilities to fulfill. to the maintenance and better functioning of the existing international order. As long as there is In doing so, China has to deal with the United sufficient political will, it will be possible for us States and develop a positive and stable rela- to seize this historic opportunity and build a new tionship with it. Of course, when U.S. policies hurt partnership for long-term stability and prosperi- China’s interests, we will do what we can to safe- ty in the world. guard and protect ourselves and ask the United States to change its position. But this is entirely Here let me say a few words about U.S. alliances different from challenging the American global in the world. We all know the origins of these alli- position and trying to establish China’s own dom- ances and how they operated during the Cold War inance in the world. era. People may believe that they served Ameri- can interests well in those years. But here is the We are also aware that nowadays what China question today. Without necessary reforms, are says and does is closely followed by many. But these alliances really up to the task of address- some prevailing perceptions are simply wrong. ing the global challenges of the 21st century? Are they winning more partners for the United States A telling example is the issue of the South China or are they turning away and even antagonizing Sea. The real issue there is disputes over terri- other important players? torial and maritime jurisdiction. China is doing nothing more than maintaining and defending Second, our ability to make the right choices will its long-standing and legitimate position. But depend on our perceptions of each other. There this has been grossly misperceived as a strate- are people in the United States who believe that gic move by China to challenge U.S. dominance everything China does is aimed at challenging in the Pacific and the world. American responses

Making the Right Choices: China-U.S. Relations at a Critical Point 2 to the Asian Infrastructure Investment Bank and There have been assertions that the United the “Belt and Road Initiative” are similar exam- States is against actions to militarize the South ples of misperceived intentions. China Sea. But it is the United States that is send- ing more and more military vessels and airplanes Some people seem to be concerned about a so- there. Such deployments, if not curbed, can only called Asian version of the Monroe Doctrine. They have the effect of militarizing the region. see China’s call for Asians to take up more respon- sibility for Asian affairs as an attempt to drive the There have been demands on China to abide by United States out of Asia, whereas China is simply international rules, especially the United Nations saying that no one else can solve Asian problems Convention on the Law of the Sea. But these if we Asians fail to shoulder our own responsibili- same people are denying China’s rights under ties. The fact is that China consistently stands for the Convention. Besides that, they often forget open and inclusive regional cooperation. to mention that the scope of the Convention does not cover sovereignty and territorial issues, But there is an alarming development toward ex- as made clear in the Convention itself. clusion here. Today, whatever China does, even within its own territory, some people in the Unit- The concept of freedom of navigation is fre- ed States always question China’s intentions and quently used to justify actions by the U.S. military challenge China’s position. So the reality is not in the South China Sea. The fact is that the U.S. that China is trying to drive anyone out of the freedom of navigation operations were originally Asia-Pacific, but that there are attempts to deny designed as a counter-measure against the free- China’s legitimate interests in its own region. I dom of navigation defined by the Convention, as would call this a Monroe Doctrine in reverse. the United States believed that the Convention provisions would restrict freedom of movement Third, whether or not we can manage differences of its navy around the world. while enhancing cooperation will depend on our will and our skill. It is encouraging to note that What is more disturbing is that such statements China-U.S. cooperation is expanding and deepen- and actions are likely to embolden some players ing. Our success stories include agreements on to be even more aggressive and provocative. climate change and the Iran nuclear issue. And we are told that the U.S. alliance obligations would be invoked if China responds to such prov- However, there are always differences between ocations. It could be that all of this is intended to us. Many of them will not disappear overnight. It intimidate China, not to start a real conflict. But is imperative to manage them in a constructive what if China is not intimidated? This approach is and pragmatic way, so that they will not domi- clearly a path to conflict. It is indeed a dangerous nate our bilateral agenda and derail the over- path and an irresponsible policy. all relationship. We are doing relatively well on some issues, such as cyber-security. But we have In conclusion, the world has changed. We need a reason to be concerned about others, such as new vision for our relationship based on a recog- the situation in the South China Sea. Statements nition of the new realities in the world. China and made by U.S. officials and actions taken by the the United States should form a new partnership American military risk escalating tensions there. to work together on today’s global challenges.

Making the Right Choices: China-U.S. Relations at a Critical Point 3 This will help both countries to better accomplish mutual respect, and win-win cooperation. De- domestic goals and fulfill international roles. It spite doubts and even suspicions in some quar- will thus serve the interests of the world commu- ters, this new model is gradually taking shape. nity as a whole. There will be a new administration here in the United States next year, and we should keep This is exactly what President Xi proposed to moving forward on this positive track. I hope and President Obama here at Sunnylands three years believe that this Leadership Forum will take the ago—a new model of major-country relations lead in helping shape government policies and characterized by no conflict, no confrontation, public opinion in support of our joint efforts.

Making the Right Choices: China-U.S. Relations at a Critical Point 4 The Author

CUI TIANKAI is Ambassador Extraordinary and the Department of Asian Affairs in the Ministry Plenipotentiary of the People’s Republic of China of Foreign Affairs. to the United States of America. Ambassador Cui was born in October 1952 in Ambassador Cui has a long and distinguished ca- Shanghai, and worked as a farm hand in Heilong- reer, previously serving in a number of esteemed jiang province from 1969 to 1974. Upon his return positions including as Assistant Minister and Vice to Shanghai in 1974, he began studying foreign Minister of China’s Ministry of Foreign Affairs and language and interpretation at East China Nor- Ambassador Extraordinary and Plenipotentiary mal University, where he earned a bachelor’s de- of the People’s Republic of China to Japan. gree, and continued his studies at Beijing Foreign Language Institute. Cui also earned a master’s He also served as Minister Counselor of the Per- degree in 1987 at Johns Hopkins University’s manent Mission of the People’s Republic of Chi- School of Advanced International Studies (SAIS) na to the United Nations, Director-General of the in Washington, D.C. Policy Research Office, and Director-General of

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