By: Megha Mittal, Research Analyst, GSDN

The Forum on China-Africa Cooperation (FOCAC) is a crucial multilateral platform established in 2000 to formalize and strengthen the strategic partnership between China and African nations. It includes 53 African countries, with Eswatini being the only exception due to its diplomatic ties with Taiwan. FOCAC aims to promote collective dialogue and practical cooperation across various sectors, including politics, economics, culture, and social development, thereby addressing the diverse needs and aspirations of African nations.

FOCAC is structured around ministerial summits held every three years, alternating between China and an African host country. This format facilitates high-level discussions and agreements intended to deepen ties between China and Africa while reflecting the continent’s unique challenges and opportunities.

The 9th FOCAC Summit, held in Beijing from September 4-6, 2024, was conducted under the theme “Joining Hands to Advance Modernization and Build a High-Level China-Africa Community with a Shared Future.” This significant summit was attended by heads of state and ministers from 53 African nations, along with representatives from regional and international organizations, including the United Nations. Notably, this year’s gathering occurred against a complex geopolitical backdrop characterized by increasing tensions between China and the West, particularly in light of the ongoing U.S.-China rivalry and the global repercussions of the Ukraine crisis.

The importance of FOCAC cannot be overstated, as it serves as a critical framework for advancing China’s engagement in Africa, which has significant implications for the continent’s developmental trajectory. Through FOCAC, China has positioned itself as a key partner for African nations, offering investment, infrastructure development, and capacity-building initiatives. The summit also provides an opportunity for African leaders to engage in bilateral discussions on governance, industrialization, agricultural modernization, and enhanced cooperation through initiatives like the Belt and Road Initiative (BRI).

As FOCAC continues to evolve, it addresses the pressing challenges faced by African countries, including poverty alleviation, economic diversification, and sustainable development. This article analyses the key outcomes and implications of the 2024 FOCAC summit, exploring its impact on the future of China-Africa relations and the broader geopolitical context in which these dynamics unfold.

Historical Context of China-Africa Relations

The relationship between China and Africa has evolved significantly, shaped by political, economic, and social factors. Since the end of the Chinese Civil War in 1949, Africa has been a focal point of China’s foreign policy, particularly during the Cold War era. China provided support for various African liberation movements, positioning itself as a champion of anti-colonial struggles. For most years since 1950, the Chinese foreign minister has prioritized visits to African nations, signalling the importance of this relationship.

In 1971, the votes of African nations were crucial in securing the People’s Republic of China’s (PRC) seat in the United Nations General Assembly, replacing the Republic of China (Taiwan). This diplomatic victory solidified China’s engagement with Africa, leading several nations to shift their recognition to the PRC. Countries such as Burkina Faso, Malawi, Liberia, and Senegal recognized the PRC, while Eswatini remains the only African nation to recognize Taiwan as of 2023.

China’s “Going Out” strategy in 1999 marked a new wave of economic engagement with Africa, promoting overseas investments by Chinese firms. This strategy led to infrastructure projects and resource extraction initiatives that transformed the economic landscape of several African nations. The establishment of FOCAC in 2000 further institutionalized this relationship, facilitating dialogue and cooperation across various sectors.

The launch of the Belt and Road Initiative (BRI) in 2013 signalled a strategic shift toward enhancing trade and infrastructure development across the continent. However, Chinese investment peaked around 2016 and subsequently declined due to domestic priorities in China and the repayment challenges faced by some African nations.

While China presents its investments as mutually beneficial partnerships, Western critics often frame it as “debt trap diplomacy,” suggesting that China’s loans can lead African nations into unsustainable debt. Nevertheless, many African countries have managed to create realistic debt arrangements with China, emphasizing the importance of responsible financial management.

China’s military engagement in Africa includes establishing its first overseas military base in Djibouti, strategically located near a U.S. military base. This move reflects China’s growing influence in the Horn of Africa and highlights its focus on regional security, including combating piracy and ensuring the safety of Chinese nationals abroad.

Recognizing that China’s approach to Africa has evolved since the Cold War is crucial. While it no longer seeks to export communist ideology, China maintains formal ties with various political parties and parliaments across the continent, adapting its strategy to fit the contemporary political landscape.

Significance of the 2024 FOCAC Summit

The 9th FOCAC summit occurs against a complex backdrop of global economic and geopolitical dynamics. As African nations grapple with high inflation, currency depreciation, and escalating debt, recent conflicts including the Israel-Hamas war and the Russia-Ukraine conflict complicate the geopolitical landscape, affecting African economies and international cooperation.

African leaders are expressing “summit fatigue” after engaging in numerous Africa+1 summits with countries like Türkiye, Russia, South Korea, and the U.S. This sentiment emphasizes the need for a focused agenda, with suggestions to adopt the Banjul format involving 15 countries plus the African Union Commission for better management and representation. The effectiveness of FOCAC hinges on Africa’s ability to assert ownership over its strategic planning, moving away from being passive recipients of foreign assistance.

Economic Dynamics and China’s Approach

The significance of the 2024 FOCAC is amplified by China’s current economic situation. Post-pandemic, China faces a prolonged economic slowdown, with manufacturing struggles leading to deflationary pressures and rising unemployment. Reports indicate that President Xi Jinping is inclined to shift investments away from large-scale infrastructure projects toward “small and beautiful projects.” This approach aligns with China’s desire to promote advanced green technologies.

Amidst concerns about loan defaults—highlighted by Zambia’s and Ghana’s recent struggles African nations are expected to seek increased lending from China, despite the noticeable decline in Chinese financial support over the past few years. From a peak of approximately US$ 28 billion in 2016, Chinese lending to Africa plummeted to around US$ 1 billion in 2022 and increased slightly to US$ 4.6 billion in 2023. Countries like Kenya are pursuing funding for vital infrastructure projects, such as completing the Standard Gauge Railway to Uganda, despite their significant debts to China.

Key Outcomes of the 9th FOCAC Summit

The 2024 FOCAC summit yielded several significant outcomes, emphasizing the evolving dynamics of China-Africa relations:

1. Financial Commitments: China pledged approximately US$ 50.9 billion in financial support over the next three years, categorized into credit, development assistance, and investments by Chinese companies in Africa. This commitment aims to enhance infrastructure, technological innovation, and industrialization efforts across the continent.
2. Partnership Action Initiatives: The summit announced the implementation of ten partnership action initiatives, focusing on areas such as agriculture, infrastructure, green development, and health. These initiatives are designed to foster sustainable development and improve the overall quality of life for African nations, while also addressing climate change challenges.
3. Debt Relief and Sustainability: Acknowledging the rising external debt levels faced by African countries, Chinese leaders discussed strategies for debt relief and sustainable financial solutions. This includes considering more favourable lending terms and encouraging transparent dialogues on debt management, thereby supporting African nations in achieving economic stability.
4. Trade and Investment Cooperation: The summit reinforced the commitment to expanding trade between China and Africa, aiming to increase bilateral trade volumes to US$ 300 billion by 2026. This goal reflects China’s intent to diversify its imports from Africa, seeking not only raw materials but also processed goods, which could benefit African economies.
5. Cultural and Educational Exchanges: The summit emphasized the importance of cultural and educational exchanges, promoting people-to-people connections between China and Africa. Initiatives such as scholarship programs and training workshops for African professionals in various fields aim to foster mutual understanding and cooperation.
6. Health Cooperation: In response to the COVID-19 pandemic, the summit highlighted enhanced cooperation in health sectors, including vaccine distribution, healthcare infrastructure development, and disease prevention initiatives. China committed to providing additional resources to bolster Africa’s health systems.
7. Green Development Initiatives: Addressing the pressing issue of climate change, China announced plans to support African nations in transitioning to green energy. Investments in renewable energy projects and technologies are expected to play a crucial role in achieving sustainable development goals across the continent.
8. Infrastructure Development: Infrastructure remains a priority in the China-Africa partnership, with commitments to enhance transportation networks, energy systems, and digital connectivity. Projects aimed at improving logistics and trade facilitation are expected to create jobs and boost economic growth.
9. Regional Stability and Security: The summit underscored the need for collaborative efforts in promoting regional stability and security, particularly in addressing conflicts and fostering peace building initiatives. China reiterated its support for African-led solutions to security challenges on the continent.
10. Belt and Road Initiative (BRI) Integration: The discussions at the summit reaffirmed the alignment of FOCAC initiatives with the Belt and Road Initiative. This integration aims to enhance infrastructure connectivity, facilitate trade, and promote economic development across Africa, positioning the continent as a key partner in global supply chains.

Strategic Messaging and Future Implications

China’s messaging at the summit underscores its status as a developing nation, aligning itself with African countries against historical injustices linked to Western imperialism. This narrative resonates well with African leaders, potentially solidifying bilateral relationships.

However, while the 2024 FOCAC presents an opportunity for enhanced cooperation, there remain concerns regarding the implementation of initiatives and transparency in dealings. The anticipated outcomes may not fully address African nations’ demands for fair resource extraction deals and equitable trade balances, suggesting that negotiations around mineral exports will continue to be a critical area of focus.

The Interdependence of China and Africa: A Mutual Need

The relationship between China and Africa is increasingly characterized by mutual dependence, with both parties standing to gain significantly from their cooperation. China has become a major trading partner and source of investment for Africa, with trade between the two regions soaring to US$ 167 billion by mid-2024. African countries are eager to expand their exports beyond raw materials, while China seeks to enhance its economic prospects amid a post-pandemic slowdown and demographic challenges.

China’s investments in African infrastructure have significantly improved connectivity and quality of life across the continent. Projects in transportation, energy, and technology are vital for Africa’s development, particularly in sectors such as healthcare and renewable energy. Conversely, Africa’s growing markets offer China new avenues for its goods and services, especially as Chinese manufacturers face increased costs domestically. This shared interest in economic growth underscores the necessity of their partnership.

With China holding approximately 12% of Africa’s public and private debt, there exists a pressing need for dialogue on debt management. African nations are concerned about debt sustainability, prompting them to seek more favourable lending terms and transparency. China’s willingness to engage on these issues is crucial for maintaining its influence and fostering goodwill.

Additionally, China’s expertise in technology and industrialization has proven beneficial to Africa, particularly in digital infrastructure and renewable energy. As African countries modernize their economies, China’s role as a partner in technological advancement will likely continue to grow.

Conclusion

The 9th FOCAC summit marks a pivotal moment in the evolution of China-Africa relations. As both parties navigate complex geopolitical dynamics and economic challenges, their partnership is increasingly characterized by mutual dependency and shared aspirations. While the key outcomes of the summit reflect a commitment to sustainable development, economic diversification, and strategic collaboration, the effectiveness of these initiatives will ultimately depend on their implementation and the willingness of both sides to address existing disparities.

In the context of shifting global power dynamics, FOCAC presents an opportunity for African nations to assert their agency in international relations while capitalizing on China’s growing influence. As they move forward, the potential for a high-level China-Africa community with a shared future hinge on their ability to cultivate a partnership rooted in equality, transparency, and mutual benefit.