China
has developed a double policy in relation to North Korea. Its primary interest
was and remains to maintain North Korea as a strategic buffer against the
extension of American commercial, diplomatic and military influence into North
Korea. For this reason, it has provided vital aid and diplomatic support to
North Korea’s regime. With the establishment of the Six Parties Talks (SPT) –
involving the United States, China, Japan, South Korea, Russia and North Korea
– since 2003 and the development of UN sanctions to pressure the North to
denuclearise and to abandon its plan to rise as a nuclear weapon state, China
adopted a secondary role – as an intermediary to resolve the dispute over North
Korean nuclear and missile activities. North Korea has declared often that it
will not abandon its nuclear and missile program because it sees it as a
valuable bargaining chip.
To
be credible as an interlocutor, it has incrementally joined the UN sanctions
and declared that North Korean missile and nuclear tests were unacceptable
behavior. In the recently held Obama-Xi Jingpin summit in California (6–7 June
2013), both sides agreed that North Korea must denuclearise and that neither
would accept it as a nuclear armed state. Obama declared that the United States
would take steps to defend itself against North Korean threats and that the
policy of sanctions and pressures would continue. The U.S. government
spokesperson noted that Pyongyang’s nuclear and missile program would have
“profound implications in the rest of Northeast Asia,” which neither China nor
the United States would like to see.
In
this summit, the common goal was recorded but there is no time line to fulfill
it and the red line concerns the rise of Pyongyang as a “nuclear armed state”
but its meaning is unclear because in recent years, North Korea has repeatedly
made public declarations that it no longer accepts the nuclear
non-proliferation treaty but is willing to talk and negotiate about its
program, which it says it will maintain until there is a satisfactory political
settlement in its favour. Although China supports UN sanctions on North Korea,
it is debatable whether it actually implements them rigorously for fear of
bringing down the Kim dynasty.
Washington
too has a double policy, but it is aimed at both Pyongyang and Beijing. North
Korea is America’s new frontier, and the endgame is to extend America’s
commercial, diplomatic and military influence into the North. If Pyongyang
denuclearises and makes a strategic deal with the United States, Japan and
South Korea, that will bring American influence to the banks of the Yalu – the
reason the Korean War was fought by China. If Pyongyang fails to denuclearise,
the U.S. government will continue to expand its military activities in the
region and in relation to Japan and South Korea and this will circumscribe the
ability of the PLA generals and the North Korean generals to expand their
manoeuvrability even as their military capabilities grow. Here, time is on
Washington’s side and it is using it to establish the red lines towards both
North Korea and China.
With
Pyongyang, the red line is that eventually it must denuclearise. With Beijing,
the red line is aimed at the PLA generals who have pushed for a forcible
assertion of China’s military influence in the South China Sea and who, in
retrospect, apparently gave wrong inputs to their political leaders in
2011–2012 that the U.S. and China’s neighbours were likely to accept the
Chinese demand to deal with the contentious issues bilaterally and in a
peaceful manner, which was a double message: that China could continue to
expand its maritime activities and to assert its territorial claims while
others had to act with restraint. Recently, the commander of the U.S. Pacific
Fleet laid down two new markers in a visit to Malaysia: (1) “We will oppose the
change of status quo by force by anyone,” Admiral Samuel Locklear, the head of
the Pacific Command, noted and (2) “We need to retain the status quo until we
get a code of conduct or a solution by party nations” [which include Malaysia,
Vietnam, Philippines, Brunei, and Taiwan]. Locklear noted that the code of
conduct would enable the military “to understand the boundaries of what they
can do in the best interest for a peaceful solution.”
This
approach is a diplomatic victory for Southeast Asian nations, which have asked
for a multilateral approach, and a setback for Beijing, which has insisted on a
bilateral approach. The complex process of negotiating a South China Sea
protocol in a multilateral forum opens up a new diplomatic and political front
for China’s political leaders and diplomatic experts while at the same time
drawing a red line around the PLA generals and the advocates of an aggressive
stance in the region. That is, the generals will have to cool their heels until
the boundary (boundaries) of what they can do are established by interstate
agreements. This is not a happy outcome for generals who prefer to work around
ambiguity about the boundary line(s).
Another
sign that Beijing’s diplomatic influence has peaked is revealed by the revival
of North Korea-South Korea talks to reopen the Kaesong industrial zone (a major
economic zone of North-South cooperation involving thousands of North and South
Korean workers and hundreds of factories) and to revive the Kumgang mountain
resort (a valuable tourist resort and source of foreign exchange). As well, the
two seek to discuss humanitarian issues in the truce village at the DMZ line.
Following months of threats and bickering, Pyongyang surprised the South
Koreans with an offer of broad-based talks without preconditions and the South
quickly accepted and met. The development of the bilateral channel of discourse
between two sides of the Korean nation and a common history before 1945 are an
interesting development in the sense that talking is better than fighting and,
in this case, bilateral talks reduce the dependence on China as an
intermediary.
In
this fast moving scene, two Chinese dilemmas are emerging. (1) It is difficult
for Beijing to navigate the pebbles in a bid to cross the big river of
US-PRC-North Korea relations. With an established pattern of controlled
escalation, Washington has the room to manoeuver in the region militarily, with
its allies in the region, and with China. On the other hand China’s
manoeuvrability is reduced as the U.S. establishes the red lines concerning
proper conduct by North Korea on the nuclear and missile question and by China
in the South China Sea. (2) At the same time, ways must be found by Beijing’s
practitioners to negotiate the pebbles to cross the big river of internal
bureaucratic politics. China’s internal policy triangle involves Xi Jingpin,
the PLA and the Foreign Office.
From
time to time, incidents related to China reveal the existence of provocative
actions by semi-independent policy silos without apparent centralised policy
coordination. China’s neighbours are learning that PLA’s actions may not be
within the knowledge of China’s diplomats and even the top leaders and one must
push back to ensure party control and diplomatic restraint by the Chinese
authorities. This means that ways must be found to strengthen the hands of the
Chinese diplomats and to establish red lines in the conduct of the PLA generals
who do not answer to the Foreign Office or even their Ministry of Defence and
remain, as in Mao’s days, and the days of the Long March, the arm of the Party.
Confucius
advised the emperor to sit down and to face the South and seek harmony. It
remains to be seen if the new emperor of China, Xi Jingpin, can face the North
and secure the Korean peninsula and then face the South to secure the South
China Sea and the Southeast Asian world. Not only does China have a new emperor
in the form of Xi Jingpin, there is also a new strategic game in China’s north
and south that will continue to be played out beyond the summitry with world
leaders.
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