The Second China-Indian Ocean Region (IOR) Forum on Development Cooperation was held in hybrid format on December 7-8, 2023 in Kunming, the capital city of China’s southwest Yunnan province. The Forum was co-hosted by the China International Development Cooperation Agency (CIDCA) and the Yunnan provincial government. Established in 2018, the CIDCA is a government agency that functions directly under the State Council of China. It is headed by Luo Zhaohui, former Vice Foreign Minister of China and former Chinese Ambassador to India. The aim of this paper is to describe the outcomes of the Second China-IOR Forum and analyse Beijing’s agenda behind the initiative. However, it is logical to briefly refer to the First China-IOR Forum, which was held in November 2022.
First China-IOR Forum, November 2022
The CIDCA and the Yunnan provincial government had hosted the first China-IOR Forum on Development Cooperation on 21 November 2022 in hybrid format. The First Forum focussed on “Shared Development: Theory and Practice from the Perspective of the Blue Economy”. According to the 2022 Joint Statement, high-level representatives of 19 countries, including Maldives and Australia and representatives of three international organizations were present at the Forum. However, Australia and Maldives rejected reports of any official participation in the First Forum.[i] As per official pronouncements, the Forum deliberated on issues, such as climate change, disaster resilience and blue economy.
Second China-IOR Forum, December 2023
As per the document released by CIDCA following the Second Forum, “more than 350 representatives from over 30 countries and international organizations, as well as think tanks, foundations and enterprises, attended the Forum”.[ii] Unlike the First Forum (2022), the Second Forum (2023) did not provide names of all the participating countries. It may be noted that no President/ Prime Minister participated physically and four President/Prime Ministers participated to only deliver their remarks via video link.[iii]
Theme
The Second China-IOR Forum focused on “Boosting Sustainable Blue Economy to Build Together a Maritime Community with a Shared Future”. Four parallel sub-forums were held on cooperation in Blue Economy; cooperation in maritime disaster prevention and reduction; biodiversity and maritime ecology protection; and the sustainable development of island countries of the Indian Ocean.
The Forum issued a Joint Statement on “Blue Economy Development Cooperation of the China-Indian Ocean Region” with a list of 10 deliverables.[iv]
Ten Deliverables
Finances: Though, there was no mention of separate budget for the Forum’s initiatives, Amb. Luo Zhaohui welcomed countries participating in the second forum to apply for specific funds for different initiatives under China’s Global Development Initiative (GDI) Project Pool Fund (total US$ 12 billion) and Global Development and South-South Cooperation Fund (US$ 4 billion). [v]
Understanding China’s Agenda
China is not an Indian Ocean country, but wants to create an alternative platform for IOR countries by proposing an ambitious agenda. Seemingly, China wants to use the countries of Indian Ocean to pursue its political objective of becoming a dominant power in Asia and the world. Consequently, it has announced a number of initiative/ schemes to get a foothold in the IOR.
The Forum should also be understood as a part of China’s goal of becoming a great maritime power. At the 18th Party Congress in November 2012, the Communist Party of China noted that China should enhance “capacity for exploiting marine resources, develop the marine economy, protect the marine ecological environment, resolutely safeguard China's maritime rights and interests, and build China into a maritime power.”[vi] These priority areas highlighted during the 18th Party Congress are in line with the deliberations held at the Second China-IOR Forum.
Secondly, China’s assertive foreign policy in recent past has alienated many of its neighbours and other countries. Chinese speakers in the Opening Ceremony of the Second Forum referred to Yunnan, as an important gateway of China's opening-up to South Asia, Southeast Asia and the Indian Ocean Rim.[vii] Therefore, the Forum could be seen as an outreach to the Indian Ocean region to address issues faced by these countries.
Thirdly, the Forum was also used by China to project its global initiatives announced over the last three years namely the GDI (2021), Global Security Initiative (2022) and Global Civilisation Initiative (2023). The official statement emphasised China’s three global initiatives and the concept of a community of common destiny. It notes “all parties appreciated the positive role China’s Global Development Initiative has played…”[viii]. However, it does not talk about participants’ response to China’s other major initiatives including the GSI.
Fourthly, it is well known that China’s BRI, including its 21st Century Maritime Silk Road (MSR), has faced challenges and backlash in different regions of the world. In this background, the Forum sought to “deepen the Belt and Road cooperation, promote the construction of international land and sea routes to the Indian Ocean…”[ix].
Finally, China desires to influence/change balance of power in the Indian Ocean region. China’s assertive foreign policy approach has caused apprehensions among regional countries.
India’s Engagement
Although India did not participate in China’s first and second IOR Forums, it is unquestionable that India has got a central position in the Indian Ocean region. Indian Ocean is linked with India in various ways and the vice-versa. India has undertaken various initiatives including through a regional approach in the Indian Ocean region. It has launched various mechanisms and cooperation initiatives with a focus on enhancing economic integration, fostering greater connectivity with IOR countries, and addressing maritime security and other issues that align with their interests.[x] India as a founding member of the Indian Ocean Rim Association (IORA),[xi] and Indian Ocean Naval Symposium (IONS) have demonstrated India’s commitment for cooperation with countries in this region.
India has contributed to build capacity and secure safety and security in the IOR, including as a first responder and a net security provider. “India’s commitment to the well-being and progress of nations of the Indian Ocean is based on its Neighbourhood First policy, the SAGAR outlook and approach to the extended neighbourhood and to the Indo-Pacific.[xii] India follows a demand-driven approach and adheres to multileralsm in its true spirit.
Conclusion
China has proposed a number of ambitious schemes at the second China-IOR Forum. It is also noteworthy that some schemes announced at the second Forum are not new. For example, it announced to implement 200 “small yet smart” livelihood projects for countries in the Indian Ocean region. It may be noted that China had announced to undertake 1000 “small yet smart” projects during the Second Belt and Road Forum held in October 2023. However, China should bear in mind that it is important to promote financial viability instead of debt burden; follow all the environmental parameters; adherence to international norms, rules and laws; and respecting the sovereignty and territorial integrity of all countries.
China cannot alter India’s natural prominence in the Indian Ocean region. The agenda and outcome of the second China-IOR Forum indicates China’s efforts to create space for a role for itself in the Indian Ocean region. There are security disruptions emerging from China’s conduct in the IOR. It is thus important to maintain the Indian Ocean as a free, open and inclusive space.
*****
*Dr. Sanjeev Kumar, Senior Research Fellow, Indian Council of World Affairs, New Delhi.
Disclaimer: Views expressed are personal.
Endnotes
[i] For details see Pragya Pandey, “China’s First Indian Ocean Region Forum and its Growing Assertiveness in the Region” available at /show_content.php?lang=1&level=3&ls_id=8760&lid=5728, Accessed on 19. 12. 2023
[ii] CIDCA, “2nd China-Indian Ocean Region Forum on Development Cooperation closes” available at http://en.cidca.gov.cn/2023-12/10/c_946766.htm, Accessed on 19. 12. 2023
[iii] President of Kenya William Ruto, President of Seychelles Wavel Ramkalawan, President of Sri Lanka Ranil Wickremesinghe, and Prime Minister of Egypt Mostafa Madbouly delivered remarks via video link.
[iv] CIDCA, “Joint Statement on Blue Economy Development Cooperation of the China-Indian Ocean Region”, available at http://en.cidca.gov.cn/2023-12/09/c_946388.htm, Accessed on 19. 12. 2023
[v] CIDCA, “Remarks on the Welcome Dinner of the Second China-Indian Ocean Region Forum on Blue Economy Cooperation by Chairman Luo Zhaohui, CIDCA” available at http://en.cidca.gov.cn/2023-12/09/c_946386.htm, Accessed on 19. 12. 2023
[vi] “Full text: Report of Hu Jintao to the 18th CPC National Congress”, available at http://np.china-embassy.gov.cn/eng/Diplomacy/201211/t20121118_1586373.htm Accessed on 19. 12. 2023
[vii] CIDCA, “ Opening Remarks of the Second China-Indian Ocean Region Forum on Blue Economy Cooperation by Chairman Luo Zhaohui, CIDCA”, available at http://en.cidca.gov.cn/2023-12/09/c_946387.htm, Accessed on 19. 12. 2023
[viii] CIDCA, “Joint Statement on Blue Economy Development Cooperation of the China-Indian Ocean Region”, available at http://en.cidca.gov.cn/2023-12/09/c_946388.htm, Accessed on 19. 12. 2023
[ix] CIDCA, “2nd China-Indian Ocean Region Forum on Development Cooperation closes” available at http://en.cidca.gov.cn/2023-12/10/c_946766.htm, Accessed on 19. 12. 2023
[x] Media Centre, MEA, GOI,“Transcript of Weekly Media Briefing by the Official Spokesperson (December 07, 2023)” available at https://www.mea.gov.in/media-briefings.htm?dtl/37366/Transcript_of_Weekly_Media_Briefing_by_the_Official_Spokesperson_December_07_2023, Accessed on 19. 12. 2023
[xi] Priority areas for cooperation under IORARC include: (i) Maritime Safety and Security; (ii) Trade and Investment Facilitation; (iii) Fisheries Management; (iv) Disaster Risk Reduction; (v) Academic and S&T Cooperation; and (vi) Tourism Promotion and Cultural Exchanges.
[xii] “Remarks by EAM, Dr. S. Jaishankar at the opening session of 23rd IORA Council of Ministers” available at https://www.mea.gov.in/Speeches-Statements.htm?dtl/37181/Remarks+by+EAM+Dr+S+Jaishankar+at+the+opening+session+of+23rd+IORA+Council+of+Ministers, Accessed on 19. 12. 2023