Between the CPA and Southern Independence: China’s Post-Conflict Engagement in Sudan

This research paper by Daniel Large for the South African Institute of International Affairs examines China's engagement in Sudan between the 2005 Comprehensive Peace Agreement (CPA) and the independence of South Sudan in July 2011. It analyzes how Beijing transitioned from a predominantly bilateral, oil-driven relationship with Khartoum to a more complex, multifaceted engagement that included diplomatic and development efforts in Southern Sudan and peacekeeping in Darfur.

• China's economic relationship with northern Sudan was heavily dominated by oil, with China accounting for 72.6% of Sudan's exports and 20.7% of its imports in 2010. Crude oil represented approximately 90% of Sudan's total export value, and China was nominally the main consumer, taking 82% of those exports.
• China's approach to peace in Sudan is defined by a belief in 'peace through development,' where economic growth is viewed as the foundation for overcoming structural conflict. This approach avoids Western-style aid or political conditionality, focusing instead on infrastructure and commercial projects.
• China's multilateral engagement in Sudan was most prominent in UN peacekeeping. China deployed multifunctional engineering units to the UN Mission in Sudan (UNMIS) in Wau, Southern Sudan, and the AU-UN Hybrid Mission in Darfur (UNAMID), where they provided logistical support and infrastructure repair.
• Despite its multilateral peacekeeping, China's primary engagement channel remained bilateral. Beijing was not a formal guarantor of the CPA, did not participate in the 2005 Oslo donor conference, and generally operated outside the international aid sector's multilateral system in Khartoum.
• China's engagement in Darfur focused on 'early recovery' through development projects, including water and road infrastructure. This included a $500 million loan for water projects, such as the Nyala water supply project, and the construction of roads connecting Khartoum to Darfur's state capitals.
• China's relationship with Southern Sudan evolved from a 'hands off' approach in the early years of the CPA to a strategic engagement starting in mid-2007. This shift was triggered by a July 2007 visit by Salva Kiir Mayardit to Beijing, which highlighted that most Chinese oil concessions were located in the south.
• To manage relations with the Government of Southern Sudan (GoSS), China opened a consulate in Juba in September 2008. This allowed Beijing to move from a Beijing-Khartoum partnership to a triangular relationship involving Beijing, Khartoum, and Juba.
• China provided a targeted development assistance program to Southern Sudan, which included the construction of 54 prefabricated primary schools, water wells, mobile medical cars, and financial support for demining training totaling RMB 20 million.
• China's military cooperation with Khartoum, including arms transfers and training, created a contradiction with its public support for peace and led to perceptions in Southern Sudan that China was an actively partisan actor during the war.
• By July 2011, China had transitioned from supporting a united Sudan to recognizing the Republic of South Sudan. Beijing's primary objective was a stable transition, which included supporting a 'peaceful, credible referendum' and maintaining relations with both new states.

APA

Large, D. (2012). Between the CPA and Southern Independence: China’s Post-Conflict Engagement in Sudan. South African Institute of International Affairs. https://saiia.org.za/wp-content/uploads/2012/04/Occasional-Paper-115.pdf

Chicago

Large, Daniel. Between the CPA and Southern Independence: China’s Post-Conflict Engagement in Sudan. South African Institute of International Affairs, 2012. https://saiia.org.za/wp-content/uploads/2012/04/Occasional-Paper-115.pdf.

Wikipedia

{{cite report |last1=Large |first1=Daniel |title=Between the CPA and Southern Independence: China’s Post-Conflict Engagement in Sudan |publisher=South African Institute of International Affairs |date=April 2012 |url=https://saiia.org.za/wp-content/uploads/2012/04/Occasional-Paper-115.pdf |access-date=17 August 2026 |via=Climate Insights Directory}}

BibTeX

@techreport{large2012between, author = {Large, Daniel}, title = {{Between the CPA and Southern Independence: China’s Post-Conflict Engagement in Sudan}}, institution = {South African Institute of International Affairs}, year = {2012}, month = apr, url = {https://saiia.org.za/wp-content/uploads/2012/04/Occasional-Paper-115.pdf}, urldate = {2026-08-17}, note = {Indexed by Climate Insights Directory} }