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DE RUEHBJ #2370/01 2961019
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O 231019Z OCT 06 ZDS
FM AMEMBASSY BEIJING
TO RUEHC/SECSTATE WASHDC IMMEDIATE 0455
INFO RUEHZO/AFRICAN UNION COLLECTIVE
RUEHOO/CHINA POSTS COLLECTIVE
RUEHLO/AMEMBASSY LONDON 2985
RUEHFR/AMEMBASSY PARIS 3931
RHEHNSC/NSC WASHDC
RUEKJCS/SECDEF WASHINGTON DC
RHMFISS/CJCS WASHINGTON DC
RUEAUSA/DEPT OF HHS WASHDC

C O N F I D E N T I A L SECTION 01 OF 06 BEIJING 022370 
 
SIPDIS 
 
C O R R E C T E D COPY (ADDRESSEE) 
 
SIPDIS 
 
DEPT FOR AF, EAP, EAP/CM 
INR FOR GILLES 
 
E.O. 12958: DECL: 10/23/2016 
TAGS: PREL AGOA ECON EAID CH
SUBJECT: PRC/AFRICA: AFRICAN HEADS OF STATE HEADING TO 
CHINA EN MASSE FOR BEIJING SUMMIT OF THE FORUM FOR 
CHINA-AFRICA COOPERATION (FOCAC) 
 
REF: A. BEIJING 7835 
     ¶B. 05 BEIJING 17598 
 
BEIJING 00022370  001.2 OF 006 
 
 
Classified By: Political External Unit Chief Edgard Kagan.  Reasons 1.4 
 (b/d). 
 
Summary 
------- 
 
¶1. (C) More than forty African Heads of State or Government 
are expected to travel to China for the Beijing Summit of the 
triennial Forum for China-Africa Cooperation ("The Beijing 
Summit")(Reftels A and B), November 3-5.  Egypt President 
Mubarak, Nigerian President Obasanjo, South African President 
Mbeki, Sudan President Bashir and Zimbabwe President Mugabe 
plan to attend, among many others.  The Beijing Summit 
represents the largest ever gathering of Chinese and African 
leaders.  Beijing-based African diplomats assess that this 
event will highlight growing Sino-African ties and cement on 
the international stage China's role as a major player in 
Africa.  The Beijing Summit will produce a "Beijing Action 
Plan" that will reflect Beijing's desire to institutionalize 
the FOCAC mechanism as China's primary vehicle for engaging 
Africa, indicate China will seek financial services 
penetration on the continent, offer an oblique commitment to 
African involvement in UN Security Council reform, highlight 
China's desire to be involved in shaping African 
counterterrorism initiatives and signal China's commitment to 
proactive public diplomacy in support of China's agenda in 
Africa.  China is ramping up public diplomacy efforts in 
advance of the event.  This cable provides a basic outline of 
FOCAC.  We will report septel on the views and assessments of 
our contacts on how FOCAC will impact PRC-Africa relations. 
End Summary. 
 
¶2. (C) Beijing-based African diplomats from Nigeria, Egypt, 
South Africa, Liberia, Ethiopia, Namibia, Zambia, Zimbabwe 
and Sudan, as well as contacts at the Beijing offices of the 
European Union, the UK Department for International 
Development (DfiD), the United Nations Development Program 
(UNDP), the UNDP-sponsored China-Africa Business Council and 
China's Ministry of Foreign Affairs (MFA) separately 
discussed preparations for the FOCAC Summit with Poloff. 
 
Big Names to Attend 
------------------- 
 
¶3. (C) Response to PRC invitations to the Beijing Forum has 
been excellent according to the PRC MFA.  At least forty 
Heads of State or Government of the forty-eight African 
countries with which Beijing has diplomatic relations are 
expected to attend.  Attendees confirmed by Beijing-based 
African embassies include Egypt President Mubarak, Sudan 
President Bashir, South Africa President Mbeki, Nigeria 
President Obasanjo, Liberia President Johnson-Sirleaf, 
Zimbabwe President Mugabe, Ethiopia Prime Minister Zenawi, 
Uganda President Museveni, Gabon President Bongo, Zambia 
President Mwanawasa, Namibia President Polhamba, Republic of 
Congo (Brazzaville) President and African Union (AU) Chair 
Sassou-Nguesso, South African Development Community (SDAC) 
Chair and Lesotho Prime Minister Mosisili and Economic 
Community of West African States (ECOWAS) and Niger President 
Mamadou.  Libyan leader Moammar Qadafi is the only notable 
absence thus far, according to our contacts.  The PRC will 
foot the bill for in-China expenses for ten members plus the 
principle (and spouse) of each delegation, according to one 
Beijing-based African diplomat.  While Foreign Ministers and 
Finance Ministers received official invitations and most will 
attend, many African countries expect additional ministers 
will join their delegations. 
 
Outside Participation Limited 
----------------------------- 
 
¶4. (C) Consistent with past practices, the PRC has invited 
the five African countries still in the Taiwan camp (Gambia, 
Burkina Faso, Sao Tome and Principe, Swaziland and Malawi) to 
participate as observers and each is expected to field 
Minister or Director General level representatives, according 
to our contacts.  The PRC has limited outside involvement in 
 
BEIJING 00022370  002.2 OF 006 
 
 
the Beijing Summit to United Nations agencies and African 
regional entities.  Outgoing UN Secretary General Koffi Annan 
has been invited but is not currently expected to attend due 
to prior scheduling commitments.  The Beijing UNDP Office 
anticipates a number of key UN Agency Heads will participate. 
 The European Union informally inquired about participating 
as an observer but was informed that would not be possible. 
DfiD sought to support a parallel Sino-African academic forum 
but that "fell by the wayside," according to a DfiD contact. 
DfiD may co-sponsor with the Chinese Academy of Social 
Sciences an academic gathering to discuss Africa in Beijing 
in December.  The UNDP-sponsored China-Africa Business 
Council will be present as a resource but will not host any 
events. 
 
Beijing Summit Format 
--------------------- 
 
¶5. (C) Prior to the Summit, a "Senior Officials Meeting" will 
convene November 1 and 2, followed by a Ministerial November 
¶3.  Heads of State or Government attend the Beijing Summit on 
November 4 and 5.  Several African Heads of State will hold 
State visits on November 6 or shortly thereafter, likely 
including President Mubarak, President Mbeki and President 
Obasanjo, according to Beijing-based African diplomats.  MFA 
African Department Director-General and Secretary-General of 
the FOCAC Follow-Up Committee Xu Jinghu, Vice Minister of 
Commerce Wei Jianguo and Ethiopia's Deputy Foreign Minister 
will co-host the Senior Officials meeting and work with 
Beijing-based African Ambassadors and diplomats to revise the 
Beijing Summit's operative documents, the "Beijing Action 
Plan (2007-2009)" and the "Beijing Declaration."  PRC Foreign 
Minister Li Zhaoxing, PRC Commerce Minister Bo Xilai and 
Ethiopian Foreign Minister Mesfin will host the Ministerial. 
 
¶6. (C) The Beijing Summit will be held at the Great Hall of 
the People.  The draft schedule has President Hu Jintao 
greeting African Heads of State or Government on arrival the 
morning of November 4.  State Councilor Tang Jiaxuan will 
chair the opening ceremonies.  Speeches will be given by 
President Hu Ethiopia Prime Minister and co-Chair of the 
Beijing Summit Zenawi and Republic of Congo (Brazzaville) 
President and African Union Chair Sassou-Nguesso.  In the 
afternoon, Premier Wen Jiabao will receive delegates at the 
"High-Level Dialogue between Chinese and African Leaders and 
Business Communities and the Second Conference of Chinese and 
African Entrepreneur," chaired by PRC Commerce Minister Bo 
Xilai.  Speeches will be given by Premier Wen and Prime 
Minister Zenawi.  The dialogue is designed to "match" Chinese 
and African businesses.  African leadership will be 
represented ceremonially by five leaders selected by 
corresponding regional entities.  Thus far, SADC Chair 
Mosisili and ECOWAS Chair Mamadou have confirmed 
participation.  A banquet is also being planned.  Wan Jifei, 
Chairman of the China Council for the Promotion of 
International Trade, the Chairman of the Union of African 
Chamber of Commerce, Industry, Agriculture and Professions 
and Chinese and Africa entrepreneurs will also address the 
dialogue participants.  A welcoming dinner and "Gala Evening" 
will close the day.  November 5th activities include a 
Roundtable of Chinese and African Leaders chaired by 
President Hu, a luncheon hosted by President Hu and a 
Roundtable of Chinese and African Leaders chaired by Prime 
Minister Zenawi.  Chairperson of the Commission of the 
African Union Konare will address the latter session. 
President Hu will preside over the adoption of the "Beijing 
Declaration" (below) and offer closing remarks.  Before, 
during and after the Beijing Summit, President Hu and Wen 
will host bilaterals and/or state visits with African Heads 
of State or Government. 
 
Operative Documents 
------------------- 
 
¶7. (C) The Beijing Summit will produce a "Beijing 
Declaration" and a "Beijing Action Plan (2007-2009)" 
(essentially a roadmap for Sino-African relations). 
Consistent with past practices, China will likely announce 
"surprise" benefits for Africa during the Beijing Summit, 
according to MFA officials and Beijing-based African 
 
BEIJING 00022370  003.2 OF 006 
 
 
diplomats.  MFA contacts told us they are working on 
"something new," possibly involving health initiatives.  The 
Africans anticipate new rounds of Special Preferential 
Treatment (SPT) tariff eliminations for Africa and, possibly, 
debt cancellation.  African countries have been lobbying 
Beijing for SPT for exports in which they may have a 
comparative advantage.  For example, Ethiopia hopes China 
will grant SPT for hides and skins as well as ground coffee. 
Finally, some smaller countries may seek to sign 
government-to-government contracts collateral to the Beijing 
Summit, although Beijing-based African diplomats from larger 
African countries have told us that the Beijing Summit will 
not be used to announce bilateral contracts. 
 
The Beijing Declaration 
----------------------- 
 
¶8. (C) The draft "Beijing Declaration" is a four-page 
political statement containing platitudes about friendship 
and cooperation and the establishment of a "new type of 
strategic partnership" between China and Africa.  African 
diplomats tell us that the Beijing Declaration is designed to 
celebrate fifty years of PRC-Africa ties, laud future 
cooperation and, in part, demonstrate to the West that 
Sino-African cooperation across the board is mutually 
beneficial.  China's standard affirmation of the "five 
principles for peaceful coexistence" and the desire for 
"multilateralism and democracy in international relations" 
are mentioned.  The draft states that "Priority should be 
given to increasing the representation and say of African 
countries in the UN Security Council and other UN agencies." 
Defense cooperation is not be mentioned as it is not 
generally within the scope of FOCAC.  The declaration pledges 
China and Africa to increase high-level visits and conduct 
strategic dialogue, expand trade and investment, enhance 
international cooperation and handle any Sino-African 
frictions through "friendly consultation."  Support for 
African democracy or human rights does not feature in either 
the Beijing Declaration or Beijing Action Plan with the 
exception of references to the United Nations Human Rights 
Council and the need to "eliminate double standards and the 
practice of politicizing human rights."  As one Beijing-based 
African diplomat said, "these are not issues for China." 
 
The Beijing Action Plan 
----------------------- 
 
¶9. (C) The current draft of the "Beijing Action Plan 
(2007-2009)" with "Chinese revisions" is a fourteen page 
document designed to "...chart the course for China-Africa 
cooperation in all areas in the next three years..."  The 
document, which will be made publicly available after the 
summit, has five sections: Preamble, Political Cooperation, 
Economic Cooperation, Cooperation in International Affairs 
and Cooperation in Social Development.  Most Beijing-based 
African diplomats note with chagrin that the Beijing Action 
Plan is short on specifics, informing us that PRC officials 
rarely reveal specific assistance or project commitments 
publicly and negotiate everything bilaterally.  Highlights of 
the current draft are included in paragraph 17. 
 
China Garners Respect, Support 
------------------------------ 
 
¶10. (C) Most of Beijing-based African diplomats say that the 
Beijing Summit will generate significant publicity for 
Sino-African ties and herald for the international community 
China's role as a major player in Africa.  African diplomats 
here underscore that African governments firmly believe that 
China respects their sovereignty, pointing out that the 
Africans enter into bilateral agreements with China with 
their eyes wide open.  While the Africans are well-aware that 
the Beijing Summit could be perceived as a Beijing-directed 
PR exercise, they unanimously reject that characterization. 
China's business interests are overt (including its pursuit 
of natural resources and markets for its goods), Africa has 
benefited from Sino-African trade despite trade imbalances, 
China does not carry any colonial-era "baggage," provided 
important support for many African liberation struggles and 
China genuinely treats African leaders, governments and 
 
BEIJING 00022370  004.2 OF 006 
 
 
businesses with respect, according to our African diplomatic 
contacts. 
 
Points of Contention 
-------------------- 
 
¶11. (C) Points of contention did arise in the drafting of the 
"Beijing Action Plan," according to our contacts.  African 
diplomats expressed mild disappointment that African 
participation in drafting the "Beijing Action Plan" has been 
minimal and African input is not adequately reflected in the 
current draft, which is likely to change little before the 
Beijing Summit.  The latest draft text was delivered to 
African Embassies in Beijing on October 12 and PRC officials 
convened a brief, two and a half hour meeting on October 13 
to listen to African concerns.  Beijing-based African 
diplomats do not expect to see another draft until the 
November 1 Senior Officials meeting. 
 
¶12. (C) Several contacts told us that PRC officials sought to 
include reference to Chinese exports of artificial 
substitutes for chocolate, vanilla and other natural 
products.  The Chinese dropped the references after meeting 
determined resistance from the Ivory Coast, Madagascar and 
other potentially affected countries.  Other contacts 
expressed disappointment that China did not give greater 
prominence to the New Partnership for African Development 
(NEPAD), despite a recently signed Memorandum of 
Understanding between China and the NEPAD Secretariat.  In 
the only reference to NEPAD, the plan simply resolves to 
"further strengthen this cooperation and explore specific 
ways and areas of cooperation."  The draft Beijing 
Declaration calls for increased "coordination and cooperation 
of the Action Plan with NEPAD..." 
 
Egypt to Host in 2009 
--------------------- 
 
¶13. (C) PRC and Egyptian contacts tell us that Egypt will 
host the 2009 FOCAC, although that agreement is not reflected 
in the Beijing Action Plan.  Beijing-based African diplomats 
are disappointed that the plan does not create a joint 
Sino-African Secretariat.  Chinese authorities head the 
Follow-Up Committee and the African "Co-Chair" of each 
triennial FOCAC meeting is co-Chair in name only.  Current 
Co-Chair Ethiopia has had little input in planning the 
Beijing Summit or drafting the operative documents, according 
to Ethiopian Embassy contacts. 
 
Protocol Challenges 
------------------- 
 
¶14. (C) With so many Heads of State and Government arriving 
simultaneously, the MFA is juggling a number of delicate 
protocol issues.  With so many African delegations in town, 
Beijing hotel space is at a premium.  The PRC offered Gabon 
President Bongo suites at the Diaoyutai State Guesthouse, in 
theory in deference to President Bongo's status as China's 
oldest friend.  Upon learning Bongo will stay at Diaoyutai, 
the Nigerian Embassy rejected China's offer of the 
Intercontinental for President Obasanjo.  The issue is still 
being resolved but Liberian contacts tell us Liberian 
President Johnson-Sirleaf will also stay at Diaoyutai. 
President Mubarak will stay at the very luxurious Penninsula 
Palace Hotel.  A French Embassy contact noted that several 
African counterparts complained that the PRC willingness to 
pay expenses does not cover costs at Beijing's most luxurious 
hotels, leaving African Embassies scrambling to get access to 
Diaoyutai. 
 
Did Obasanjo Plan DPRK Trip? 
---------------------------- 
 
¶15. (C) Two Beijing-based Nigerian diplomats separately told 
us that President Obasanjo planned to travel to the DPRK 
November 1 and 2 in advance of the FOCAC Summit but turned 
off the idea in light of recent developments.  President 
Obasanjo is planning to travel to ROK on November 6, the day 
after the FOCAC Summit concludes.  Our Nigerian contacts did 
not know why Obasanjo sought to travel to the DPRK but 
 
BEIJING 00022370  005.2 OF 006 
 
 
speculated simply that Obasanjo had never been there and 
wanted to see it as part of his long farewell tour in advance 
of 2007 elections. 
 
Draft Beijing Action Plan Highlights 
------------------------------------ 
 
¶16. (C) Taken as a whole, the Beijing Action Plan presents a 
broad picture of China's expanding role in Africa.  Of 
particular note are Beijing's desire to institutionalize the 
FOCAC mechanism as China's primary vehicle for engaging 
Africa, indications China will seek financial services 
penetration in Africa, an oblique commitment to African 
involvement in UN Security Council reform and China's 
involvement in shaping African counterterrorism initiatives 
and proactive public diplomacy designed to bolster China's 
agenda in Africa. 
 
¶17. (C) The draft document divides Political Cooperation into 
subsections on High-level Visits and Dialogue, Consultation 
and Cooperation Mechanisms (FOCAC), Contacts Between 
Legislatures, Political Parties and Local Governments, 
Consular and Judicial Cooperation and Cooperation Between 
China and the African Union as well as the Sub-regional 
Organizations in Africa.  Economic Cooperation includes 
sections on Agriculture, Investment and Business, Trade, 
Finance, Infrastructure, Energy and Resources, Science and 
Technology, Information, Air and Maritime Transport and 
Quality Inspection.  Cooperation in Social Development 
includes Development Assistance and Debt Relief, Human 
Resources Development, Culture, Education, Medical Care and 
Public Health, Environmental Protection, Tourism, News Media 
and People-to-People, Youth and Women Exchanges.  Specific 
highlights include: 
 
-- A Chinese proposal for PRC and FOCAC Foreign Ministers to 
hold political consultations on the margins of the UN General 
Assembly the year after each summit to exchange views on 
major issues of common interest. 
 
-- A pledge to enhance contact and cooperation between the 
Communist Party of China and friendly political parties and 
organizations in Africa. 
 
-- "China encourages its financial institutions to set up 
more branches in Africa..." 
 
-- With platitudes about mutual benefit, a pledge to conduct 
"joint exploration and rational exploitation of energy and 
other resources..." 
 
-- "The two sides agreed to encourage their aviation and 
shipping companies to establish more direct air and shipping 
links between China and Africa." 
 
-- "In reforming the UN Security Council, priority should be 
given to increasing representation of developing countries, 
African countries in particular, and consensus should be 
reached through full and in-depth consultation."  NOTE: 
Contacts tell us Egypt pushed to include specific mention of 
Security Council reform in the Beijing Action Plan.  The text 
is compromise language.  END NOTE. 
 
-- "The two sides will strengthen cooperation in 
anti-terrorism.  They condemn and oppose terrorism in 
whatever form and are opposed to double standard (sic.). They 
support the United Nations and UN Security Council in playing 
a leading role in the international campaign against 
terrorism and in helping African countries improve their 
counterterrorism capability.  China supports African 
countries to adopt a counter-terrorism convention and set up 
related research institutes." 
 
-- China decides to "continue to provide concessional loans 
to African countries...to help (their) 
self-development...Cancel more debts contracted by 
governments of heavily indebted poor countries and LDCs in 
Africa that have become due and take an active part in debt 
relief operations within the multilateral framework." 
 
 
BEIJING 00022370  006.2 OF 006 
 
 
-- China decides to "Establish Confucius Institutes in 
African countries to meet their needs in the teaching of 
Chinese language and encourage the teaching of African 
languages in relevant Chinese universities and colleges..." 
 
-- China decides to "provide anti-malaria drugs to Africa and 
set up a number of demonstration centers for prevention and 
treatment of malaria in Africa..."  NOTE: MFA contacts 
earlier this year hinted China might launch artemisia-related 
programs in Africa through the Beijing Summit, but the 
Beijing Action Plan remains vague.  END NOTE. 
 
-- "The two sides support and encourage more report and 
coverage by their respective news media of the other side and 
will provide mutual assistance and facilitation of each 
other's news agencies in sending residence correspondents or 
conducting news reporting...The Chinese side is ready to 
provide assistance and facilitation of resident and 
non-resident correspondents from African news agencies..." 
 
¶18. (SBU) China's official news agency, Xinhua, has ramped up 
Africa coverage in advance of the Beijing Summit, conducting 
"exclusive" interviews with African leaders such as Ethiopia 
Prime Minister Meles Zenawi and disseminating laudatory 
articles such as "Chinese community increasingly integrated 
into (South Africa's) 'rainbow nation'" and "Beijing Summit 
to boost new China-Africa Strategic Partnership." 
Randt