19与欧洲、中国的关系-荷兰国际关系研究所_81页_957kb

Summary of Covid-19 and Europe-China Relations: A Country-Level Analysis

Core Content

This report, published by the European Think-tank Network on China (ETNC) on 29 April 2020, provides a detailed analysis of how the global Covid-19 pandemic has influenced Europe-China relations at the country level. It highlights the dual role of China as a partner, competitor, and rival in the context of the crisis, and explores how different European nations have responded to China’s involvement, both in terms of cooperation and political tensions.

The report is composed of country-specific chapters, written by a group of leading think tanks and scholars, which examine the strategic, economic, and political implications of the pandemic on bilateral relations. It also emphasizes the broader impact of these dynamics on the future trajectory of the Europe-China relationship.

Main Views and Key Information

China's Role in the Pandemic

• Mutual Aid and Cooperation: China has provided significant medical aid to European countries, particularly in early 2020, with over 50 tonnes of medical supplies delivered by the EU to China in January. In return, China has also sent donations and supplies to Europe, often accompanied by public diplomacy efforts.
• Commercial Exchanges Exceed Aid: The volume of commercial medical supplies from China has far outstripped aid. This has led to increased reliance on Chinese products, especially in the context of the health crisis.
• Mask Diplomacy: China has used mask donations as a tool for public diplomacy, often tailored to local audiences. For example, in Portugal, Chinese aid was framed in terms of celebrated poets, while in Greece, it was linked to Aristotle.

China's Public Diplomacy

• Well-Organized Campaigns: Chinese embassies and officials have engaged in proactive public diplomacy across Europe, with four key messages:
  1. Highlighting solidarity and aid.
  2. Promoting international unity.
  3. Presenting China’s response to the pandemic as a success story.
  4. Countering negative narratives about China, including doubts about the virus’s origin.
• Variation in Approach: The style and tone of China's public diplomacy vary across European countries. In Latvia and Romania, it has been low-key, while in Poland, Italy, and Spain, it has been more charming or aggressive. In France and Germany, some pushback has occurred against China's provocative messaging.
• Targeted Communication: China has adapted its messages to local contexts, such as sister-city relationships and local government ties, to enhance its diplomatic image.

Political and Economic Implications

• Internal Political Divisions: In some countries, such as Italy and the Czech Republic, the Covid-19 crisis has intensified political debates over China, highlighting divergent national approaches and populist sentiments.
• Strategic Dependence: The reliance on Chinese medical supplies has sparked debates on strategic dependence, especially in the pharmaceutical and PPE sectors.
• EU and Bilateral Relations: The report notes the lack of EU-wide coordination in responses to China, and the increased visibility of European officials in China-related discussions, such as Ursula von der Leyen and Josep Borrell.
• Geopolitical Tensions: The pandemic has amplified existing geopolitical tensions, particularly with US-China rivalry, as European countries seek to balance their interests with both powers.

Country-Level Analysis Highlights

• Austria: Maintains a non-confrontational stance, but has begun to push for greater European autonomy. It has not engaged in direct criticism of China but has implemented investment screening and diversified supply chains.
• Bulgaria: Has limited dependence on Chinese medical supplies, but China's public diplomacy has been proactive. The government has diversified its sources and is reviving its pharmaceutical industry.
• France: Experiences political tensions, with some officials challenging China's narratives and blaming Western democracies for poor pandemic management.
• Germany: Views the pandemic as a catalyst for structural shifts in Europe-China relations, with increased scrutiny of China's influence in international institutions.
• Hungary: Continues with business-as-usual relations, with no significant changes in its approach to China.
• Italy: Faces internal political discord, with Covid-19 highlighting divergent views on China’s role and xenophobic sentiments.
• Portugal: Sees the pandemic as a test of European unity, with China's aid seen as a contrast to European inaction.
• Romania: Experiences divergent opinions on China’s actions, with media attention on EU funding and Chinese influence.
• Spain: Emphasizes the necessity of China as a partner, while also raising concerns about data privacy and healthcare cooperation.
• Sweden: Demonstrates ambiguity in its response, with xenophobic tendencies and diplomatic tensions with both China and the US.
• Switzerland: Has limited policy debate on China, with no major shifts in its approach.
• United Kingdom: Sees the pandemic as an opportunity to sharpen the China debate, with increased scrutiny of China’s role in global governance.

Broader Implications

• The pandemic has acted as a catalyst for existing trends in Europe-China relations, such as increased scrutiny of China’s global influence.
• Strategic dependence on China for medical supplies is a key concern for many European countries, prompting discussions on supply chain security.
• Public diplomacy from China has been well-coordinated, with divergent strategies depending on target audience and bilateral relations.
• US-China tensions have influenced Europe’s stance, as some countries have resisted US confrontational rhetoric while still being subject to diplomatic pressure.
• The report suggests that the Covid-19 crisis could lead to a more geopolitical Europe, with collective action on issues such as 5G, investment screening, and industrial policy.

Conclusion

The Covid-19 pandemic has exposed and intensified the complex dynamics of Europe-China relations, revealing both cooperation and conflict. The report underscores the importance of multilateral approaches in managing these relations and the need for Europe to balance its strategic dependence on China with geopolitical considerations. It also highlights the role of public diplomacy and the potential for a more unified European stance in the future.