Perspective from Papua New Guinea (PNG): China as a Non-Security Threat

In the context of the Indo-Pacific security narrative, China has been consistently portrayed as a security threat by Australia and other regional powers. However, it is important to recognize that Papua New Guinea (PNG) and other member countries of the Pacific Islands Forum (PIF) hold a different perspective. These minor powers focus more on non-traditional security concerns, such as human security and environmental issues, as articulated in the Boe Declaration. From their standpoint, China is seen as a development partner rather than a security threat.

To understand PNG's position, it is essential to examine its relations with Australia and China since gaining independence. Initially, PNG formulated a foreign policy of "Universalism," driven by the desire to diversify its relations and reduce dependence on Australia, its former colonial administrator. However, Australia continued to exert significant influence through aid and trade, and the country remained closely tied to its former colonizer.

One significant factor that shaped PNG's foreign policy approach was the Cold War. PNG's leaders aimed to benefit from both ideological blocs by adopting a neutral or non-aligned stance, fostering partnerships with countries from all sides. Consequently, PNG established diplomatic relations with China in 1976, recognizing the importance of economic opportunities, such as inexpensive consumer goods and markets for PNG's resources like copper, timber, and cocoa. Furthermore, PNG strongly supported the "One China" policy, which formed the foundation of its bilateral relations with China.

Following the end of the Cold War, the international power dynamics shifted from bipolarity to unipolarity, with the United States emerging as the sole superpower. Nonetheless, PNG continued its pragmatic approach to engaging with different countries to foster its development. The "Active and Selective Engagement" foreign policy, adopted in 1982, emphasized the need to adapt to changing internal and external circumstances while protecting national interests.

Under this framework, PNG implemented the "Look North" policy, driven by the need to address the economic impact of Australia's aid reduction in 1986. Recognizing the potential benefits, PNG actively engaged with China to secure its national interests, aligning with its overall foreign policy approach.

However, PNG's attempt to recognize Taiwan as a country in 1999 under the leadership of William Skate faced opposition from both China and Australia. Australia, committed to the "One China" policy and having a significant trade partnership with China, voiced its disapproval. PNG, in turn, accused Australia of dictating its foreign policy decisions and infringing on its sovereignty. This incident exemplifies the complex dynamics between China, Australia, and smaller Pacific nations like PNG.

The signing of the Belt and Road Initiative (BRI) in 2018 marked a significant milestone in PNG-China relations. This decision by Peter O'Neill aligned with his foreign policy approach of "Connecting for peace and prosperity in a changing world" and the basic principle of "Active and Selective Engagement." However, Australia responded with its own policy, the "Pacific step up," leading to competition between China and Australia in various areas, including underwater fiber optic cables and infrastructure development.

To understand the power dynamics, the Asia Power Index by the Lowy Institute provides valuable insights. China ranks as the second most powerful country out of 26 in terms of comprehensive power, while Australia ranks sixth. PNG, as a minor power, ranks at the bottom. China and the United States are classified as superpowers, with Australia forming a strong alliance with the US. This dynamic creates intense competition between China and the US, in which Australia is an active participant.

It is crucial to note that PNG lacks strong security alliances with superpowers or middle powers. With limited military capabilities and strategic value, PNG does not possess significant influence in global security dynamics. As a member of the Pacific Islands Forum (PIF), PNG shares the security concerns of other minor powers in the region. These concerns primarily revolve around non-traditional security issues, as emphasized in the Boe Declaration, rather than conventional security threats.

Minor powers in the Pacific, including PNG, have developed close ties with China due to economic factors. They have received loans and grants for infrastructure projects, engaged in free trade negotiations, and sought to create markets for their agricultural and marine products. While there may be occasional blunders or disagreements, such as the Toropo incident, where a defense force commander's statement was corrected to emphasize the mutual respect and non-threatening nature of China-PNG relations, the overall perception remains that China is not a security threat.

In conclusion, PNG's foreign policy approach of "Universalism" and subsequent "Active and Selective Engagement" has guided its relations with both Australia and China. While Australia and regional powers view China as a security threat, minor powers in the Pacific, including PNG, perceive China differently. Their focus is on non-traditional security issues, and they consider China as a development partner rather than a security concern. The power dynamics highlighted by the Asia Power Index further illustrate the differing perspectives on security in the Indo-Pacific region.