In late November, China announced its first-ever overseas military
outpost in the strategic African state of Djibouti. Its purpose,
according to the Chinese leadership, is to assist Chinese Navy ships on
United Nations
antipiracy missions. This comes on the heels of a
security and defense agreement
signed between Chinese Minister of Defense Chang Wanquan and Djibouti’s
Minister of Defense in February 2014, which included the use of
Djibouti as a port for the Chinese Navy as well as assistance in
building up the operational capabilities of Djibouti’s military.
For some, this is a cause for alarm. China has until now refrained
from emulating the United States’ longstanding policy of maintaining
military bases in key geographic locations, condemning what it considers
to be gestures of American imperialism and hegemony. Instead, Chinese
foreign policy has centered on economic development. In March 2015,
Chinese President Xi Jinping announced his Silk Road Economic Belt and
Maritime
Silk Road
initiative (also known as “One Belt One Road”), a $140 billion economic
plan to consolidate and strengthen China’s geopolitical power.
Similarly, on December 4, at the Forum on China-Africa Cooperation
summit in South Africa, President Xi Jinping
pledged $60 billion in development assistance to Africa, including $5 billion in grants and interest-free loans.
What Beijing is slowly coming to realize, however, is that their
economic interests are best served when developed hand-in-hand with
military capabilities. The American practice of building bases where it
serves national interests has allowed for continued US leverage and
influence worldwide. If China hopes to continue its ascension into the
upper echelons of international power, building up their military is not
only a logical step; it’s a necessary one. Earlier this year and for
the first time ever, China
dispatched a combat battalion
to take part in a United Nations peacekeeping operation in South Sudan,
where Beijing has major oil interests. China’s 2015 military budget of
about
$145 billion
was the second-largest in the world following the US, but many foreign
analysts say China’s real military spending is significantly higher.
For China, focusing on Africa and Djibouti in particular is of
critical importance. Strategically, Djibouti’s location on the Horn of
Africa is ideally situated to protect oil imports from the Middle East
that traverse the Indian Ocean on their way to China. From Djibouti,
China gains greater access to the Arabian Peninsula. The United States
recognizes Djibouti’s geographic importance and maintains a base there,
as do France, Germany and Japan.
Currently, Beijing is
funding 14 mega projects
in Djibouti worth $9.8 billion, six times more than Djibouti’s GDP.
China has invested heavily in infrastructure, including hundreds of
millions of dollars spent upgrading the country’s undersized port. It
has additionally financed a railroad extending from Addis Ababa, the
capital of Ethiopia, to the Port of Djibouti—a project that cost
billions of dollars. Beijing also cultivates its relationship with
Djibouti by treating government officials to lavish ceremonies and
summits more appropriate for leaders of greater global significance.
Such political gestures, designed to stoke personal egos, can have a
great effect in states where government officials wield significant
power and wealth in their countries, such as Djibouti’s President Ismail
Guelph and his top aides.
Africa presents a perfect opportunity for China as it begins flexing
its foreign policy muscles. The continent, still reeling from the scars
of its colonial past, lags behind all other continents in every human
development metric possible. That’s why China, with its economics-based
foreign policy, offers an attractive package for developing countries: a
lack of stigma associated with former colonial powers, easy loan deals
and a willingness to invest in projects Western institutions deem too
risky. China has economic, political and military deals with numerous
African states including Algeria, Ethiopia and Nigeria (three countries
rich in energy resources). At the Forum on China-Africa Cooperation on
December 4th, following Xi Jinping’s announcement of $6 billion in
development assistance, Zimbabwe President and current Chairman of the
African Union
Robert Mugabe said: “[Xi Jinping] is doing to us what we expected those who colonized us yesterday to do.”
China’s attractive economic deals aren’t just limited to
infrastructure projects. It has a burgeoning arms and defense trade, and
Chinese Unmanned Combat Aerial Vehicles (UCAVs) are already incredibly
popular, especially in the Gulf. The price tag can be as little as $1
million for a Chinese Wing Loong I compared to $30 million for a US
Reaper. Furthermore, the US has prohibitive policies on who can purchase
their weapons and defense systems, while China does not. Saudi Arabia,
the UAE and Iraq are all
confirmed operators of Chinese drones. China’s military continues to expand; on New Year’s Eve, the Chinese Defense Ministry announced that it was
building its first indigenous aircraft carrier—the second one ever for the People’s Liberation Army Navy.
These developments have not escaped the notice of Western military
and intelligence officials. The US maintains Camp Lemonnier, its only
base in Africa, in Djibouti. Lemonnier is home to 4,000 American troops
who train and conduct counterterrorism operations, including fighter
planes and Predator UAV drone operations in Yemen and Somalia. In 2013,
Washington announced a $1.3 billion expansion plan for Lemonnier. In
response to the February 2014 Chinese-Djiboutian security agreement, the
US agreed to pay double its previous rent for Lemonnier in the hope of
maintaining positive relations with President Guelleh. Overall,
US investment in Djibouti amounts to $70 million annually.
A May 2015
Diplomat article
likens the situation in Djibouti to a “zero-sum [game], where one
power’s gain can only come at the other one’s loss.” Yet I would be
cautious with this comparison.
For one, China’s base should be a welcome asset to counterpiracy
efforts in the Gulf, which is a good opportunity for China to assume
more responsibility on an important multilateral issue. Furthermore,
China does have a legitimate stake in responding to domestic pressure to
protect its citizens in the region. During the
Libyan civil war
in 2011, the Chinese government extracted nearly 36,000 workers. In
2012, militants captured 29 Chinese workers on a road project in Sudan.
In November 2015, three Chinese executives were killed when Islamic
militants stormed a hotel in Bamako, the capital of Mali. Just before,
ISIS announced that it had killed a Chinese captive, Fan Jinghui.
China’s interest in the Middle East is also fueled by the rise of the
Islamic State, which has recruited hundreds of Uyghurs (a contentious
Chinese Muslim ethnic group) into its foreign fighter ranks. In December
2015, ISIS
released its first ever Chinese language recruiting video.
With the inevitability of Chinese military expansion looming on the
horizon, the US and China must improve their bilateral relations and
allow for Djibouti to serve as a productive analog in the future. Not
only does the Sino international development plan have more financing
available than Western ones, but is also more receptive in regions such
as Africa and parts of the Middle East.
Reports have leaked
of Chinese plans to open at least a dozen new overseas military bases.
China has also already sought to gain strategic military access through
economic incentives in countries such as Bangladesh, Myanmar, Pakistan
and Sri Lanka.
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