China’s request to the UN Security Council on amending sanctions imposed on Sudan, in relation to the Darfur region, is consistent with its more active role in that country, as well as in the Middle East and the Horn of Africa as a whole. Beijing has maintained good relations with Khartoum for years, indicating Sudan’s importance in the Chinese strategic vision. Sudan presents promising investment opportunities, a source of strategic resources, a transit corridor for South Sudan’s oil, and is also China’s third largest trading partner in Africa.
Relations between China and Sudan are heading to a new era, driven by political change in Sudan as well as China’s own international standing. This follows a relative coolness in bilateral relations since the popular protest movement which broke out in December 2019. This new phase in relations was signaled by the Deputy Permanent Representative of China to the United Nations, Dai Ping, calling on the Security Council to ease the sanctions imposed on Sudan in relation to the Darfur region. The new Chinese approach coincides with what appears to be a Western, specifically American, acceptance of the transitional Sudanese government, although it had been reluctant to do so following the measures imposed by the Chairman of the Sudanese Transitional Sovereign Council Abdel Fattah Al-Burhan on October 25th, 2021. This acceptance was confirmed by the arrival of US Ambassador John Godfrey to Sudan, to be the first US ambassador in Khartoum in 25 years.
Long-term relations
China has maintained good relations with all Sudanese governments, whether they be elected civilian governments or formed by the military, since independence. Following the military coup led by Bashir to against Sudan’s third democratic government- which lasted only three years- Sudan reached out to China. This was on the advice of Hassan al-Turabi, who argued that the West would not accept an Islamic government in Khartoum. After the deterioration of relations with the West, especially the United States, and the imposition of sanctions in 1977, China became Sudan’s main ally.
There are a number of indications of the continued closeness between the two sides, the most important of which are:
China’s neutral position on the conflict in Darfur: China’s position on the conflict in Darfur, between the former regime of Omar al-Bashir and the armed movements in the region, has been neutral. It accepted the Sudanese government’s narrative – at the time – that the conflict is the result of isolated armed insurrections that will be controlled. This Chinese position came in accordance with the principle of “non-interference in the internal affairs of countries”, which was adopted by Beijing in dealing with the global south.
Accordingly, China has proceeded to provide aid to the Sudanese government, in an attempt to contain the crisis, and as a kind of response to the Western campaign against Sudan, especially within the Security Council. It has in general chosen to try to ameliorate the council’s resolutions regarding this issue, rather than resorting to the use of the veto.
Undermining resolutions condemning Sudan: China, along with Russia, used their veto powers, at the end of December 2014, to undermine a draft Security Council resolution condemning Sudan for expelling international humanitarian aid organizations. This was the first instance China used this power in Sudan’s favor since bilateral relations were established.
Regarding the Darfur crisis, China chose to either approve or abstain from voting on resolutions issued by the UN Security Council. This was the case, for example, in September 2004, when the council passed Resolution No. 1564, condemning the killing of civilians in Darfur. China abstained from the vote and threatened to veto any further move to impose sanctions on Sudan.
Surviving South Sudan’s secession: In the eyes of many African countries, Chinese-Sudanese relations remained a model of withstanding US sanctions. After the secession of South Sudan in July 2011, relations between the two sides were expected falter, as about 75% of the oil resources were now under the control of South Sudan. The continuity of Chinese-Sudanese relations provided the launching point for wider Chinese influence in Africa, which proved beneficial for China.
Several factors have increased the strategic importance of an Arab and African country such as Sudan in China’s strategic vision regarding Africa in general, and the region of the Horn of Africa in particular, these include:
Promising investment opportunities: Beijing realizes Sudan’s importance as one of the most promising African countries for investment, given the attractive and diverse opportunities it has in many sectors, such as oil, uranium, and gold exploration, as well as agriculture, livestock, and infrastructure. Sudan revealed, in March 2021, that three Chinese companies are looking to invest USD 1 billion in the fields of agriculture, oil, and mining.
Chinese companies are also scrambling to be involved in Sudan’s sea ports, including China Port Engineering Company, which offered USD 543 million in financing to expand facilities in the Sudanese port of Suakin. Meanwhile, China Port Company is developing a port for shipping livestock in Haidub, south of Port Sudan.
Geo-strategic importance: Sudan’s importance to China has risen as it borders the Red Sea for up to 600 km. The Red Sea is one of the most important strategic waterways in the Chinese vision for its Belt and Road initiative and is important in allowing Beijing to strengthen its presence in the Horn of Africa, having established military base in Djibouti since 2017.In addition to the geopolitical importance of Sudan’s location, it also enjoys an abundance of natural resources and minerals, such as oil, natural gas, and uranium. This explains heightened competition between the major powers in western Sudan.
Transit route for South Sudan’s oil: China’s stance on viewing the overthrow of Omar al-Bashir’s regime in 2019 as an internal affair, reflect Beijing’s keenness on maintaining its presence in Sudan and protecting its economic interests as well as its strategic partnership with Khartoum declared in 2015. China views stability in Sudan as a necessity , in order to safeguard its access to South Sudan’s oil, which accounts for roughly 7% of China’s total oil imports.
China’s third trading partner in Africa: China is the largest foreign investor in Sudan, and its investments there are the largest in Africa. Among China’s largest trading partners in Africa, Sudan ranks third, after Angola and South Africa. On October 16th, 2020, the signing of 10 agreements took place, covering gold and mineral exploration and the development of the oil sector, between Sudan and Chinese companies. Sudan’s importance is further heightened by the amount of loans China has extended it, which are likely to ensure continued trade, as well as the long-term access to Sudanese oil.
Strategic Partnership
China’s interests in Sudan are not limited to securing its oil needs, but extend to trade and infrastructure, as well as consolidating political and cultural relations. Despite what appeared to be a reduction in its economic activities in Sudan after the events of 2019, China signaled its continued support by calling on the Security Council to lift sanctions on Sudan, stressing that these sanctions severely limited the Sudanese government’s ability to maintain stability and protect civilians in Darfur, foreshadowing China’s return to improve its future access to energy and raw materials.
Given its deep interests in Sudan and in the Horn of Africa, China will maintain a strategic partnership with Sudan, as an important and distinguished trade and economic partner in the Horn of Africa, and in Africa in general.