Chinese Provinces as Foreign Policy Actors in Africa

The document analyzes how China's decentralization and internationalization have empowered its provinces to act as multilayered foreign policy actors in Africa. It details their roles in trade, construction, investment, and aid, noting that while they often act as agents of the central government, they increasingly pursue independent economic interests. The authors argue that this subnational engagement facilitates deeper Sino-African relations but can also create diplomatic friction due to labor disputes and unethical business practices. The paper suggests that African nations should adopt a multilevel approach to engagement by partnering directly with Chinese provinces to attract investment and share developmental expertise.

• Chinese provinces operate within a multilayered foreign policy system where they act both as agents of the central government and as partners with their own interests. While the central government retains control over policy direction, provinces handle administrative work in consular, media, and overseas Chinese affairs, and can conduct 'informal diplomacy' with countries lacking formal ties to China.
• Provincial trade with Africa is growing rapidly, though it remains a small percentage of their total trade. Active provinces like Guangdong, Shanghai, and Zhejiang often run trade surpluses with Africa, contrasting with China's overall national trade deficit with the continent in 2006, which is attributed to resource imports being recorded by Beijing-based state-owned enterprises.
• Provincial companies are expanding rapidly in the African construction market. While national companies still lead in massive projects, provincial firms from Guangdong, Shanghai, and Jiangsu are significant players. Some inland provinces, such as Hunan, rely more heavily on the African market for their overseas construction business than coastal provinces do.
• Provincial governments have transitioned from being uninvolved in African investment to actively encouraging it through strategies, subsidies, and funds. For example, Shanghai identified South Africa as a key investment springboard, and Tianjin established an industrial zone in Egypt via TEDA Investment Holding, supported by both central loans and provincial subsidies.
• Provinces serve as primary delivery mechanisms for China's national aid, particularly through a pairing system for medical teams. For instance, Shanghai has provided medical teams to Morocco, and Gansu has been paired with Madagascar for over 30 years. Some provinces have also begun providing symbolic aid using their own local funds.
• Subnational intergovernmental relations are fostered through twinning (sister-city) agreements. Shanghai and Jiangsu have the most twinning relationships in Africa (seven each). These channels are used by provincial officials to seek economic opportunities and by African officials to attract foreign direct investment.
• The proactive engagement of provinces can create diplomatic friction and damage China's image in Africa. Issues include poor labor relations and unethical business practices, exemplified by protests by Chinese workers in Mauritius and a fatal clash involving workers in Equatorial Guinea.

APA

Zhimin, C., & Junbo, J. (2009). Chinese Provinces as Foreign Policy Actors in Africa. South African Institute of International Affairs. https://saiia.org.za/wp-content/uploads/2009/02/Occasional-Paper-22.pdf

Chicago

Zhimin, Chen, and Jian Junbo. Chinese Provinces as Foreign Policy Actors in Africa. South African Institute of International Affairs, 2009. https://saiia.org.za/wp-content/uploads/2009/02/Occasional-Paper-22.pdf.

Wikipedia

{{cite report |last1=Zhimin |first1=Chen |last2=Junbo |first2=Jian |title=Chinese Provinces as Foreign Policy Actors in Africa |publisher=South African Institute of International Affairs |date=January 2009 |url=https://saiia.org.za/wp-content/uploads/2009/02/Occasional-Paper-22.pdf |access-date=23 October 2026 |via=Climate Insights Directory}}

BibTeX

@techreport{zhimin2009chinese, author = {Zhimin, Chen and Junbo, Jian}, title = {{Chinese Provinces as Foreign Policy Actors in Africa}}, institution = {South African Institute of International Affairs}, year = {2009}, month = jan, url = {https://saiia.org.za/wp-content/uploads/2009/02/Occasional-Paper-22.pdf}, urldate = {2026-10-23}, note = {Indexed by Climate Insights Directory} }