The ministerial conference of the Forum on China-Africa Cooperation (FOCAC), in Beijing in early September, will be the ninth such event. Since its inception in 2000 FOCAC has provided a platform for cross-continental solidarity and economic cooperation, solidifying the bonds between China and African nations. The upcoming conference, to be held in September in Beijing, will convene senior African and Chinese representatives in Beijing to discuss the future trajectory of Sino-African cooperation.
Since its emergence, FOCAC has distinguished itself as the most effective plurilateral agreement between Africa and a single nation, and has generated some of the largest financial commitments to African countries on the part of a single nation. FOCAC covers a wide range of forms of engagement, including investment, loans for infrastructure, healthcare and technological advancements. This remarkable depth and scope sets the conference apart from other summits, as diplomatic forums involving Africa and a single nation often limit their focus to a specific theme. FOCAC’s far-reaching agenda allows the conference to make a substantial impact by engaging with all aspects of the African continent.
FOCAC’s impact extends far beyond the triennial forum, thanks in part to its robust monitoring and preparation mechanism. Coordinators’ meetings are held one year after each ministerial conference to evaluate progress. A senior officials’ preparatory meeting occurs a few days before each triennial conference, and there are senior officials’ follow-up meetings bi-yearly to evaluate action progress. This continuous dialogue maintains momentum and accountability for the projects set forth during the conference itself.
Maintaining momentum
Most plurilateral agreements – except perhaps for the African Union-European Union forum and Japan’s Tokyo International Conference on African Development (TICAD) – lack such a mechanism, which can cause important commitments to lose momentum over time. FOCAC’s institutionalised monitoring mechanism ensures that progress does not stall between each triennial conference.
FOCAC stands out not merely for its wide impact, but also for the unique Africa-China relationship it represents. According to its most recent white paper on the subject, China views its engagement with Africa as a form of mutual assistance between two developing nations, in the realm of South-South cooperation. Despite the difference in state capabilities, China and Africa have parallel experiences in terms of total size, population and organisation of society.
This shared developmental trajectory sets FOCAC apart from the numerous asymmetrical forums between African countries and a single developed nation, argue proponents of the relationship. Supporters claim FOCAC is characterised by a sense of equality and mutual benefit, challenging the traditional donor-recipient model that has characterised the relationship between African states and other nations. FOCAC’s continued success highlights the potential for South-South alliances to drive sustainable development, which could redefine global economic dynamics for years to come.
The evolution of FOCAC
FOCAC was established in 2000 in response to African countries’ desire for more coordination in their bilateral relationships with China. It was modelled on TICAD, along with other plurilateral agreements between African countries and a single state, though it has since outgrown all other agreements in both scope and size. The forum has been held triennially since its inception, without missing a single scheduled year – even in the midst of Covid-19.
The FOCAC ministerial conference consists of two key elements. The first is high-level, numeric and input-based, involving continent-wide pledges from China to African countries. The second is the identification of broad cooperation areas, which provide the backdrop for delivery of many of the high-level pledges and are typically listed in the “action plan”. Areas of cooperation under FOCAC’s action plans have greatly expanded over time. In 2000, only 20 topics were emphasised; by 2021, over 40 topics were emphasised.
In 2015, FOCAC6 birthed 10 major China-Africa cooperation plans. China provided $60bn worth of financial support to implement the initiatives, including $5bn of free aid and interest-free loans. By the end of FOCAC7, 44 commitments were categorised under eight major initiatives.
In November 2021, the 8th ministerial conference of FOCAC was held in Dakar, Senegal. The Conference’s main focus was how to “deepen China-Africa partnership and promote sustainable development to build a China-Africa community with a shared future in the new era”.
Following this theme, a number of key initiatives were launched during the 2021 conference. During the opening ceremony, President Xi Jinping announced the “nine programmes of focus” for the first three years of the China-Africa Cooperation Vision 2035. This programme officially outlined key areas of focus to improve cooperation between China and African countries, including health, poverty reduction and agriculture, trade, investment, digital innovation, green development, capacity building, people-to-people exchanges and peace and security. The “nine programmes” marks the first time that peace and security has been considered a priority in the FOCAC agenda.
The emergence of peace and security as a priority – as well as the firm continuity of staple priorities, such as trade – highlights the growing dimensions of cooperation between China and Africa. It indicates that FOCAC is expanding its approach to collaboration by addressing issues beyond economic development and touching on critical areas that affect the stability and well-being of African nations.
The Dakar Action plan set forth the tangible activities that China planned to undertake, in accordance with the nine programmes, to achieve the objectives outlined during the summit.
What to expect from FOCAC9
At the upcoming FOCAC9 a range of key developments are expected to shape the China-Africa partnership. Building on past initiatives, the conference will continue to prioritise the expansion of trade and industrialisation. Although trade volumes between China and Africa have increased, there is still a significant need for diversification in Africa’s exports. The conference should consider offshoring Chinese factories to the continent, as well as utilising economic and trade cooperation zones, to enhance Africa’s industrial and manufacturing capacities.
In terms of infrastructure, FOCAC9 could see the emergence of intracontinental cooperation. China’s infrastructure projects with Africa have been defined by bilateral cooperation, but regional cooperation would allow loans to be scaled up significantly. African countries could organise pooled financing structures or borrowers’ clubs with institutions such as China Exim Bank, the African Development Bank (AfDB), or the Asian Infrastructure Investment Bank (AIIB).
The enhancement of people-to-people relations may also feature prominently in this year’s conference. During the China-Africa leaders dialogue in 2023, the Plan for China-Africa Cooperation on Talent Development was announced, through which China committed to provide more vocational training to teachers, principals and technical personnel, and to operate pilot exchange programs. Additionally, the recovery from the pandemic is expected to bring renewed focus on cultural exchange, potentially kickstarting a new era of Sino-African tourism.
Outside of these three areas, the staple agenda items, such as health cooperation, agricultural development and digital economy initiatives, are likely to be revisited with fresh perspectives and enhanced commitments. As seen from FOCAC’s evolution, the forum is continually expanding the reach of China-Africa engagement; this year’s conference is expected to build on past successes while also exploring new avenues for collaboration.