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China’s Fragile Economy

Is the Chinese economy more fragile than we are led to believe by the Biden Administration? In 2022 President Xi Jinping seems intent on China’s becoming more state centered and less market oriented under its current economic plan. A revised trade strategy has involved the United States working with other major economies to negotiate new rules for dealing with China. However, the most advanced effort to date is not centered in Washington but is being worked on in the European Union, including through the Trade and Technology Council. The Biden Administration has not enforced the previous administration’s China trade deal. 

Since its signing, the world has experienced the associated dislocations of the Covid pandemic, including Chinese factories behind schedules and shipping constraints. Chinese contract law often points to the “spirit of mutual respect” for enforcement of an agreement vs. unchanging written facts, such as delivery dates and amounts of goods sold, found in a Western style agreement. For China, the Trump trade deal met with an “unforeseeable event outside the control of the parties…” that delayed “a party from timely complying with its obligations.” Therefore, no agreement was broken.

On January 15, 2020, China and the United States signed “Phase 1” of President Trump’s trade bill in which China committed to purchasing an additional $200 billion in American exports by the end of 2021. The deal failed. The media has downplayed China’s broken promise and has instead focused more on the sensationalism of the Olympic scandals. The trade agreement’s only real accomplishment was to stem the spiraling trade wars between the two nations. It failed to offset uncertainty over restarting US investment in American exports. According to a trade tracker used by the Peterson Institute for International Economics (PIIE), “Ultimately, China bought only 57 percent of the US exports it committed to purchase over 2020–21. US exports of covered goods and services to China over the two years were $288.8 billion.” In 2020–21, PIIE said China fell $13.6 billion short of reaching even the baseline level of purchases, although the Biden Administration complained that China was holding back sales, including aircraft, engines, and parts. One area of US trade that did expand dramatically was the exports of American made medical supplies used to treat Covid. Under the Trump trade deal, US farm exports did get back to 2017 levels and ultimately reached 83 percent of the 2020–21 commitment. 

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The big question is whether the United States can coerce China to comply with the Trump trade agreement. A Biden Administration official earlier this week called it a “living agreement,” a term most likely well-received in Beijing and much less so by the US business community. Chad Bown of PIIE noted that the United States did not publish clear monthly data on services exports, making Beijing’s progress difficult to evaluate. The Biden Administration inherited a deal requiring a strong political leader with the will power to enforce the mechanism to make it work. To date, the Biden Administration has shown little leadership in this area and is instead continues “recalibrating” its effort. Bloomberg Business recently quoted Kelly Ann Shaw, who served as deputy assistant to the president for international economic affairs in the Trump Administration as saying “To make progress on structural issues, the administration needs to be prepared to offer China something it wants—or threaten something it doesn’t.” For a coercion, or a threat, to make it must be believed. If China looks westward toward President Biden’s weak handling of the crisis in Ukraine, Beijing may not see a need to change its behavior. When an unnamed Biden trade official attempted to call his counterpart in Beijing, the Chinese official simply refused to take the call. A Biden trade official called it “unfair.” That about sums up the Chinese response to the US “recalibration.”

Daria Novak served in the U.S. State Dept., and specialized in China.

Illustration: Shanghai skyline (Pixabay)