China and Germany: Promoting a Shared Agenda for the G-20 in 2016/2017
November 19, 2015
- China and Germany will consecutively hold the G-20 presidencies in 2016 and 2017. They should work together proactively in shaping a focused and practicable G-20 agenda for the mid-term.
- As countries with different, yet complementary, capacities and priorities, China and Germany should place sustainable cross-border infrastructure investment high on the agenda of the G-20.
- China puts the focus on potentially environment-intensive cross-border infrastructure investment. With its new finance institutions, China can help to ease budgetary constraints and to integrate Central Asian economies into global market networks.
- Germany is well positioned to bundle the technical expertise of industrialized countries and international finance institutions so as to minimize the ecological, socioeconomic and economic footprint of the infrastructure investments proposed by China.
- Chinese-German collaborative initiatives on infrastructure investment will have to actively address and reconcile the concerns among potential recipients about an asymmetric distribution of net gains in favor of China.
“Once you start thinking about growth, it is hard to think about anything else”. This statement by Nobel Prize Laureate Robert Lucas could have been the overarching guideline of past G-20 meetings. The 2014 Brisbane Summit Meeting, for instance, named stronger growth even twice in the first two sentences of the Leaders Communiqué. Other issues were subordinated to pushing growth.
At the same time, everywhere, even in the poorer regions of the world, the call for a better quality of life and higher well-being of people has become louder. Demands for reducing environmental damage and resource absorption while moving away from one-sided physical capital accumulation with its hefty carbon footprint have become part of an intense public debate in most political systems.
China is a prime example for these demands. China’s Five-Year-Plan 2016-2020 whose basic features were communicated at the end of October 2015 targets a lower annual average GDP growth rate of 6.5% towards a “moderately well-off society” and towards more ecological security by sticking to “green” development. The “good-bye” to investment-driven growth and the “welcome” to consumption-driven and service-oriented growth has become a standing matter in each official statement of Chinese economists and political leaders.
China will hold the G-20 presidency in 2016. Its plea for more quality of life and a lower carbon footprint could perhaps be the beginning of a new paradigm for global governance giving a much higher priority to sustainability targets.
However, there is another call from China which triggers second thoughts whether the country welcomes the same developments abroad which it welcomes at home. This is the “Road and Belt Initiative”. This initiative is an investment-driven strategy in its purest form, including a deep carbon footprint. “Infrastructure gap” assessments signal a high need for these investments which apart from the established finance institutions are to be financed by new institutions (AIIB, NDB, Silk Road Fund) that are all financially powered by China.
No doubt, the dismal history of assessing “gaps” in the past (such as “savings gaps”, “foreign exchange gaps”, “aid gaps”) invites a critical judgment. Gaps are moving targets. They are often conceived as static or mechanical and therefore misleadingly suggest having reached a finishing line once the gap is closed. However, it is also clear that long gestation periods, corruption issues, maintenance costs and financing bottlenecks led international institutions in the past to be very reluctant with regard to large-scale infrastructure investment, especially into cross-border infrastructure.
To provide a novel and innovative response to infrastructural needs, however, sustainable cross-border infrastructure investment should be put high on the agenda for the Chinese and German G-20 presidencies in 2016 and 2017, respectively. An ambitious infrastructure agenda, however, cannot be adequately launched and pursued within just one year. China will need support in overcoming concerns about the new financing institutions that it has sponsored.
Here, the G-20 presidency of Germany in 2017 could help. Germany should put cross-border infrastructure investment high on its G-20 agenda, thereby pushing for the explicit consideration of sustainability and the lowest possible carbon footprint. Through working on a shared agenda, China and Germany could give a two-year, practicable focus to the G-20. China would receive signals from Germany where to stop in the excessive expansion of infrastructure investment. On the other hand, China would induce Germany to consider major infrastructure investment from the perspective of mutual benefit and gains, thereby helping to overcome the characteristicly excessive caution and inertia in German infrastructure policies.
Germany’s contribution to a G-20 infrastructure agenda would be to collect and bundle all expertise available within the industrialized countries and the multilateral finance institutions (World Bank, European Bank for Reconstruction and Development etc.) to ensure that cross-border infrastructure investment projects proposed by China meet criteria of ecological, social, economic and financial sustainability and do not become a hunting ground for transnational corruption networks.
Furthermore, Germany could use rich experiences from cross-border investment projects within the EU to tackle the challenges of asymmetric benefits between partner countries. For instance, it is likely that a number of small Central Asian countries could see highways crossing their territories to one-sidedly benefit Chinese construction companies or Chinese traders of consumer goods as well as commodities. As cross-border infrastructure investment in Central and South Asia are facing security and geopolitical concerns (such as a perceived encirclement of India), consultation process within the G-20 should be initiated by China and Germany to address these concerns upfront from the very beginning.
Chinese-German cooperation across two consecutive G-20 presidencies would not only balance the two objectives of economic transformation and sustainable development. It could also support the multilateral agenda for reducing carbon emissions. Simultaneously, it would acknowledge that a prudential and sensitive view on environmentally risky infrastructure investment would not forego the benefits that a better physical infrastructure offers for regions and people which on the long way between China and Europe are today more decoupled from markets than they were during the high time of the historical Silk Road.
*This article was originally published by MERICS on November 10. We thank MERICS for allowing to re-print the article.
Rolf J. Langhammer
Professor, Kiel Institute for the World Economy and Mercator Institute for China Studies (MERICS), Berlin
