Dec 15th 2008

Opening China, Then and Now

by Richard Holbrooke

Richard Holbrooke is a former US ambassador to the United Nations and the chief architect of the 1995 Dayton Peace Agreement that ended the war in Bosnia.

WASHINGTON, DC - America's opening to China by Richard Nixon and Henry Kissinger in 1971-1972 was a historic breakthrough. Less famous, but of equal importance, was the next major step, taken by Jimmy Carter exactly 30 years ago, establishing full diplomatic relations between China and the United States. Without this action, announced on December 15, 1978, US-China relations could not have moved beyond a small, high-level connection with a limited agenda.

As they left office in 1977, President Gerald Ford and Kissinger left behind an incomplete and therefore unstable relationship with China. The US still recognized Taiwan, under the name of The Republic of China, as the legitimate and sole government of China. Since 1972, America and China maintained small "liaison offices" in each other's capitals, without recognition. Official communications were very limited, and annual bilateral trade was under $1 billion. (Today, it is a staggering $387 billion.)

Carter took office hoping to normalize relations with China. This would require switching American recognition from Taiwan to the mainland. Some saw this as a simple acknowledgement of reality, but in fact it was a momentous step that required diplomatic skill and political courage.

A way would have to be found for the US, while recognizing China, to continue dealing with the government on Taiwan without recognizing their claim to represent China; most important, the US had to retain the right to sell arms to Taiwan. From a political point of view, there was the famed Taiwan lobby, one of the most powerful in the US, still dominated by the conservative wing of American politics.

Led by America's "Mr. Conservative," Senator Barry Goldwater, and the leading contender for the 1980 Republican nomination, Ronald Reagan, the Taiwan lobby would fight normalization all the way. (Goldwater took the US government to the Supreme Court to challenge, unsuccessfully, Carter's action; Reagan, in the 1980 presidential campaign, pledged partially to undo normalization, only to abandon that position after he was elected.)

The saga unfolded over the first two years of the Carter administration, entirely out of public view, except for two important trips to China, one by Secretary of State Cyrus Vance, the other by National Security Advisor Zbigniew Brzezinski. Incredibly, those of us involved in the process (I was then Assistant Secretary of State for East Asian and Pacific Affairs) managed to keep our intense negotiations completely secret.

The Chinese demanded a complete severing of all official ties between Taiwan and the US, including arms sales. Knowing that such a move would provoke an enormous backlash domestically, we looked for a formula for continuing official contacts and arms sales with Taiwan even after we had de-recognized them and terminated the mutual security treaty ratified during the Eisenhower years.

There was no precedent for this in American or international law. With advice from Eisenhower's former Attorney General, Herbert Brownell, State Department lawyers drafted the Taiwan Relations Act, a law like no other in American history, which allowed the US government to conduct business with Taiwan, including arms sales, without recognition.

But when we explained to China why this was necessary in order to recognize them, they balked. They wanted trade and other benefits of recognition, which would benefit both nations in those Cold War days, when China was fiercely hostile to the Soviet Union, with which it had almost gone to war only a few years earlier. But Taiwan remained a huge, seemingly impossible obstacle.

The breakthrough came in late 1978, and was carefully timed by Carter to follow the mid-term congressional elections. The most important factor in the breakthrough was probably the emergence of Deng Xiaoping as China's new paramount leader. (Mao had died in 1976).

Deng, who had been forced to wear a dunce cap and denounce himself during the insanity of the Cultural Revolution, had achieved the greatest comeback imaginable, and in the fall of 1978, he finally got enough power to cut a deal with the US: China would not "agree" to American arms sales or other activities with Taiwan, but they would proceed with normalization anyway. It was a classic example of Chinese negotiating style: firm on principle, flexible on specifics.

I am leaving a lot out here - this was a very complicated negotiation - but that was the essence of it. In January 1979, Deng made his historic trip to the US, which began with a private dinner at Brzezinski's house and climaxed with the most sought-after State dinner of the Carter years (also remarkable for Richard Nixon's first visit to Washington since he had resigned; I sat at Nixon's table, and retain a menu that everyone signed that night).

At Brzezinski's house, Deng talked of his dreams for a China that he knew he would not live to see. He believed China could leapfrog the lost years in which the world had passed it by, but only with American support. He was ready to cooperate on containing the Soviet Union, even agreeing to the installation of secret American intelligence listening posts along China's border to track Soviet missiles.

Deng accurately foresaw a vast exchange of students, modern technology, and trade. More than any American official, he anticipated what the American opening to China would accomplish. But even Deng could not fully imagine what would be unleashed by that announcement of December 15, 1978 - nothing less than the development of the most important bilateral relationship in the world today.


Copyright: Project Syndicate, 2008.

If you wish to comment on this article, you can do so on-line.

Should you wish to publish your own article on the Facts & Arts website, please contact us at info@factsandarts.com. Please note that Facts & Arts shares its advertising revenue with those who have contributed material and have signed an agreement with us.

 


This article is brought to you by Project Syndicate that is a not for profit organization.

Project Syndicate brings original, engaging, and thought-provoking commentaries by esteemed leaders and thinkers from around the world to readers everywhere. By offering incisive perspectives on our changing world from those who are shaping its economics, politics, science, and culture, Project Syndicate has created an unrivalled venue for informed public debate. Please see: www.project-syndicate.org.

Should you want to support Project Syndicate you can do it by using the PayPal icon below. Your donation is paid to Project Syndicate in full after PayPal has deducted its transaction fee. Facts & Arts neither receives information about your donation nor a commission.

 

 

Browse articles by author

More Current Affairs

May 27th 2022
EXTRACTS: "Monetary policymakers are talking tough nowadays about fighting inflation to head off the risk of it spinning out of control. But that doesn’t mean they won’t eventually wimp out and allow the inflation rate to rise above target. Since hitting the target most likely requires a hard landing, they could end up raising rates and then getting cold feet once that scenario becomes more likely. Moreover, because there is so much private and public debt in the system (348% of GDP globally), interest-rate hikes could trigger a further sharp downturn in bond, stock, and credit markets, giving central banks yet another reason to backpedal." ----- "The historical evidence shows that a soft landing is highly improbable. That leaves either a hard landing and a return to lower inflation, or a stagflationary scenario. Either way, a recession in the next two years is likely."
May 26th 2022
EXTRACT: "No, I am not arguing that Powell needs to replicate Volcker’s tightening campaign. But if the Fed wishes to avoid a replay of the stagflation of the late 1970s and early 1980s, it needs to recognize the extraordinary gulf between Volcker’s 4.4% real interest rate and Powell’s -2.25%. It is delusional to believe that such a wildly accommodative policy trajectory can solve America’s worst inflation problem in a generation."
May 26th 2022
EXTRACT: "It will be critical in this context how China will act and whether it will prioritise its economic interests (continuing trade with Europe and the US) or current ideological preferences (an alliance with Russia that makes the world safe for autocracies)."
May 26th 2022
EXTRACT: "The document is full of embarrassing and damming stories of illegal gatherings and bad behaviour. There was “excessive alcohol consumption”, a regular fixture referred to as “wine time Fridays” and altercations between staff. Aides are shown to have left Downing Street after 4am (and not because they had worked into these early hours). Cleaning staff and junior aides were abused, and a Number 10 adviser is on record before the infamous “bring your own booze” party...."
May 17th 2022
EXTRACT: "But even a resounding Russian defeat is an ominous scenario. Yes, under such circumstances – and only such circumstances – Putin might be toppled in some kind of coup led by elements of Russia’s security apparatus. But the chances that this would produce a liberal democratic Russia that abandons Putin’s grand strategic designs are slim. More likely, Russia would be a rogue nuclear superpower ruled by military coup-makers with revanchist impulses. Germany after World War I comes to mind."
May 8th 2022
EXTRACT: "For citizens of states that are members of NATO, taking all possible steps, short of all-out war, to ensure that Russia does not conquer Ukraine is not even an altruistic sacrifice. It is a long-term investment, for themselves and their children, in freedom, democracy, and the international rule of law."
May 4th 2022
EXTRACT: ".....a remarkable transformation is taking place in Ukraine’s army amounting to its de facto military integration into Nato. As western equipment filters through to the frontline, Nato-standard weaponry and ammunition will be brought into Ukrainian service. This is of far higher quality than the mainly former Soviet weapons with which the Ukrainians have fought so capably. The longer this process continues and deepens, the worse the situation will be for the already inefficient Russian army and air force."
May 3rd 2022
EXTRACT: " The conventional wisdom among students of the Russian arts and sciences is that Russian culture is “great.” The problem is that, while there are surely great individuals within Russian culture, the culture as a whole cannot avoid responsibility for Putin and his regime’s crimes." ---- "Russianists will not be able to avoid examining themselves and their Russian cultural icons for harbingers of the present catastrophe. What does it mean that Fyodor Dostoevsky was a Russian chauvinist? That Nikolai Gogol and Anton Chekhov were Ukrainian? That Aleksandr Solzhenitsyn was an unvarnished imperialist? That Aleksandr Pushkin was a troubadour of Russian imperial greatness? May these writers still be read without one eye on the ongoing atrocities in Ukraine?"
Apr 29th 2022
EXTRACT: "The following day Lavrov met his Eritrean counterpart, Osman Saleh, in Moscow. Eritrea was the only African country to vote against the UN resolution condemning the invasion. In this refusal to condemn Russia, Eritrea was joined by only Belarus, North Korea and Syria. Even longstanding allies such as Cuba and China abstained. It’s an indication of Russia’s increasingly limited diplomatic options as this war continues."
Apr 24th 2022
EXTRACT: "Although the milestone lasted only for a brief time, it points to a future in which California runs on 100% wind, solar, hydro and batteries, a future that will certainly arrive even faster than the state plans. As it is, California is ahead of its green energy goals." ...... "A world of 100% green energy and electric cars is not only a healthier and more comfortable world, it is a world where oil and gas dictators like Vladimir Putin are defunded."
Apr 17th 2022
EXTRACT: "Kazakhstan’s authorities have also showed uncharacteristic leniency in allowing public rallies in support of Ukraine. Thousands of protesters holding banners reading “Russians, leave Ukraine”, “Long Live Ukraine” and “Bring Putin to trial” marched across the capital, Almaty, wrapping monuments to Lenin and other Soviet-era figures with yellow and blue balloons symbolising the Ukrainian flag."
Apr 15th 2022
EXTRACT: "People’s identification with the Soviet Union appears to have a clear and growing basis in Russian public opinion. Surveys we have conducted throughout the Putin period show that Soviet identification among the general population – something that had been steadily declining after the collapse of the Soviet Union in 1991 – began to increase in 2014, when the Russian government annexed Crimea and supported rebellions in the Ukrainian regions of Luhansk and Donetsk. By 2021, almost 50% of those surveyed identified with the Soviet Union rather than the Russian Federation."
Apr 13th 2022
EXTRACT: "Worse yet, the Hungarian government has effectively been helping Putin by prohibiting the shipment of weapons to Ukraine across its borders. Hungarian public TV spreads Russian disinformation day and night. The day before the election, an assembly of ordinary people expressing solidarity with Ukraine was framed on state television as a “pro-war rally.” "
Apr 13th 2022
EXTRACT: "It may well be that the Russian army’s fate has already been sealed in what is likely to be a long war. The single qualification to this may be that Russia could default to escalation using “weapons of mass destruction” of one form or another – whether tactical nuclear warheads or chemical weapons."
Apr 13th 2022
EXTRACTS" "Ukraine and Russia produce a substantial amount of grain and other food for export. Ukraine alone produces a whopping 6% of all food calories traded in the international market. At least it used to, before it was invaded by the world’s largest nuclear power." ...... "When it comes to cereals like wheat, corn, rice and barley, the big players talk about millions of metric tonnes, or MMTs. A single MMT of wheat contains about 3.4 trillion food calories,." ....."Ukraine produced about 80 MMT of grain (a category that includes wheat, corn and barley) in 2021, and is expected to harvest less than half of that this year. A shortfall of 40 MMT is enough missing calories that a country like the UK could only make it up by having everyone stop eating for three years. That’s the thing about tonnes of grain: a million here and a million there and pretty soon you’ve got a real issue on your plate."
Apr 11th 2022
EXTRACT: "I don’t even know the little girl’s name. All I do know is what a friend of a friend wrote on Viber: that her relative, a senior nurse in one of Kyiv’s hospitals, “saw in the morgue a child with 20 varieties of sperm on her small body.” Since this information was conveyed in a private conversation, there is no reason to doubt its veracity."
Apr 8th 2022
EXTRACT: "Russian society has so far failed to stop Putin, just as German society failed to stop Hitler. And so, like a poisoned chalice, that task has fallen to the West, as it did in 1939. The West must now treat Putin and his regime the same way that Winston Churchill treated Hitler: Don’t talk to him, just defeat him. Dead-enders such as Putin are too fanatical and desperate to be reliable negotiating partners."
Apr 3rd 2022
EXTRACT: "From 1807 to 1814 on the Iberian peninsula, Napoleon had to fight Spanish, Portuguese and British armies while beset by ubiquitous, ferocious insurgents. He described this war as his “bleeding ulcer”, draining him of men and equipment. It is the west’s aim to make Ukraine for Putin what Spain was for Napoleon. In the absence of a negotiated settlement, Ukraine and Nato will continue to grind away at Russia’s army, digging away at that bleeding ulcer and prolonging Russia’s agony on the military front, as the west continues its parallel assault on its economy. If Putin’s plan is to proceed with the Korea model, he will fail. There is a strong possibility that Putin has only a limited idea of how badly his army is faring. So be it – he’ll find out soon enough that there is now no path for him to military victory."
Apr 1st 2022
EXTRACTS: "Policymakers expected that the country would be able to secure its energy supply entirely from renewable sources, so they resolved to phase out coal and nuclear energy simultaneously. The last three of Germany’s 17 nuclear power plants are set to be shut down this year." ---- ".... the share of wind and solar power in Germany’s total final energy consumption, which includes heating, industrial processing, and traffic, was a meager 6.7%. And while wind and solar generated 29% of the country’s electricity output, electricity itself accounted for only about a fifth of its final energy consumption." ----- "If Germany suddenly halted Russian gas imports, gas-based residential heating systems – on which half the German population, approximately 40 million people, rely – and industrial processes that rely heavily on gas imports would break down....."
Apr 1st 2022
EXTRACT: "For Putin, the past that matters most is the one the dissident author and Nobel laureate Aleksandr Solzhenitsyn exalted: the time when the Slavic peoples were united within the Orthodox Christian kingdom of Kievan Rus’. Kyiv formed its heart, making Ukraine central to Putin’s pan-Slavic vision. ---- But, for Putin, the Ukraine war is about preserving Russia, not just expanding it. As Russian Foreign Minister Sergei Lavrov recently made clear, Russia’s leaders believe that their country is locked in a “life-and-death battle to exist on the world’s geopolitical map.” That worldview reflects Putin’s longstanding obsession with works of other Russian emigrant philosophers, such as Ivan Ilyin and Nikolai Berdyaev, who described a struggle for the Eurasian (Russian) soul against the Atlanticists (the West) who would destroy it. ---- Yet Putin and his neo-Eurasianists seem to believe that the key to victory is to create the kind of regime those anti-Bolshevik philosophers most detested: one run by the security forces. A police state would fulfill the vision of another of Putin’s heroes: the KGB chief turned Soviet General Secretary Yuri Andropov."