James M. Dorsey
By defining Chinese characteristics as “seeking common ground while reserving differences,” a formula that implies conflict management rather than conflict resolution, Messrs. Sun and Wu were suggesting that China was seeking to prepare the ground for greater Chinese engagement in efforts to stabilize the Middle East, a volatile region that repeatedly threatens to spin out of control.
The scholars defined China’s goal as building an inclusive and shared regional collective security mechanism based on fairness, justice, multilateralism, comprehensive governance, and the containment of differences.
By implication, Messrs. Sun and Wu’s vision reflected a growing realization in China that it no longer can protect its mushrooming interests exclusively through economic cooperation, trade, and investment.
It also signalled an understanding that stability in the Middle East can only be achieved through an inclusive, comprehensive, and multilateral reconstructed security architecture of which China would have to be part.
Messrs. Sun and Wu’s article, published in a prominent Chine policy journal, was part of a subtle and cautious Chinese messaging that was directed towards players on all sides of the Middle East’s multiple divides.
To be clear, China, like Russia, is not seeking to replace the United States, certainly not in military terms, as a dominant force in the Middle East. Rather, it is gradually laying the groundwork to capitalize on a US desire to rejigger its regional commitments by exploiting US efforts to share the burden more broadly with its regional partners and allies.
China is further suggesting that the United States has proven to be unable to manage the Middle East’s myriad conflicts and disputes, making it a Chinese interest to help steer the region into calmer waters while retaining the US military as the backbone of whatever restructured security architecture emerges.
Implicit in the message is the assumption that the Middle East may be one part of the world in which the United States and China can simultaneously cooperate and compete; cooperate in maintaining regional security and compete on issues like technology.
That may prove to be an idealized vision. China, like the United States, is more likely to discover that getting from A to B can be torturous and that avoiding being sucked into the Middle East’s myriad conflicts is easier said than done.
China has long prided itself on its ability to maintain good relations with all sides of the divide by avoiding engagement in the crux of the Middle East’s at times existential divides.
Yet, building a sustainable security architecture that includes conflict management mechanisms, without tackling the core of those divides, is likely to prove all but impossible. The real question is at what point does China feel that the cost of non-engagement outweighs the cost of engagement?
The Middle East is nowhere close to entertaining the kind of approaches and policies required to construct an inclusive security architecture. Nevertheless, changes to US policy being adopted by the Biden administration are producing cracks in the posture of various Middle Eastern states, albeit tiny ones, that bolster the Chinese messaging.
Various belligerents, including Saudia Arabia, the United Arab Emirates, Qatar, and Turkey, but not Iran or Israel, at least when it comes to issues like Iran and the Palestinians, have sought to lower the region’s temperature even if fundamentals have not changed.
A potential revival of the 2015 international Iran nuclear agreement could provide a monkey wrench.
There is little doubt that any US-Iranian agreement to do so would focus exclusively on nuclear issues and would not include other agenda points such as ballistic missiles and Iranian support for non-state actors in parts of the Middle East. The silver lining is that ballistic missiles and support for non-state actors are issues that Iran would likely discuss if they were embedded in a discussion about restructured regional security arrangements.
This is where China may have a significant contribution to make. Getting all parties to agree to discuss a broader, more inclusive security arrangement involves not just cajoling but also assuaging fears, including whether and to what degree Chinese relations with an Iran unfettered by US sanctions and international isolation would affect Gulf states.
To be sure, while China has much going for it in the Middle East such as its principle of non-interference in the domestic affairs of others, its affinity for autocracy, and its economic weight and emphasis on economic issues, it also needs to manage pitfalls. These include reputational issues despite its vaccine diplomacy, repression of the Uyghurs in the north-western province of Xinjiang, and discrimination against other Muslim communities.
China’s anti-Muslim policies may not be an immediate issue for much of the Muslim world, but they continuously loom as a potential grey swan.
Nevertheless, China, beyond doubt, alongside the United States can play a key role in stabilizing the Middle East. The question is whether both Beijing and Washington can and will step up to the plate.
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