CHINA IN INTERNATIONAL ORGANIZATIONS: NATIONAL INTERESTS, RULES AND STRATEGIES

Abstract

Just twenty years after its entry into the World Bank and IMF, China had joined over 50 international organizations (IO) and had become involved with 1,275 international non-governmental organizations (INGOS). Previously one of the least connected states in the world, China is now one of the most connected on the measure of IO membership. Importantly, China’s behavior within IOs has “varied from symbolic to substantive” at various stages in its global participation. Consequently, China has exhibited a dichotomy of puzzling behavior in its interaction in IOs. Sometimes it complies when doing so appeared counter to internal interests, while other times it has undermined organizations it has greatly benefited from. These patterns have not always been consistent either since its participation has varied over time within different organizations. Why does China’s behavior within these organizations vary? Why does China join or create new IOs when it is already a member of a similar organization? I build upon a diverse body of political science research arguing that China looks beyond the satisficing aspect of whether the IO is good enough, and more to how its behavior can optimize achieving its desired interests. My theory posits that in the context of relative shifts in power, variation in China’s IO behaviors is predicated by the extent to which IOs conform to China’s national interests. This rational behavior approach (RBA) outlines four strategies: rule-taking, rule-breaking, rule-changing, and rulemaking. Furthermore, I argue that as an emerging state’s relative power increases over time, so does its bargaining power, leading to a more assertive rule-changing behavior as it attempts to adapt the organization to allow its ascendancy as a rule-maker. My research explores 40 years of the PRC’s participation within the World Bank Group and International Monetary Fund drawing from semi-structured, in-depth interviews with WB China directors, IMF China directors, the Chief Counsel for AIIB’s establishment, a WB president, Department of Treasury and State representatives, and Chinese nationals who have held key positions in both WB and IMF staff. This research also includes reviews of secondary literature exploring China’s interaction within these organizations and analysis of 40 years of annual reports, consultations, and transcripts obtained from archived organizational records.