A Comparative Study on the Role of Sino-US Participation in Climate

Governance in the Post-pandemic Era

Haoyu Gong

, Yanyi Yang

and Jieyu Zang

School of Northeast Asia Studies, Shandong University, Wenhuaxi Street, Weihai, China

Keywords: Climate Governance, Post-pandemic Era, China and the United States, Role Theory, The Biden

Administration.

Abstract: COVID-19 has profoundly affected the development process of global climate governance. Under the Biden

administration, the United States announced its return to the multilateral cooperation framework on climate

governance with an ambitious policy, which brought an opportunity for the interaction and cooperation with

China. From the perspective of role theory, the roles of China and the United States on climate issues mainly

depend on their interest cognition, identity perception and external expectations. Under the interest cognition

of "realizing sustainable development" and the identity of "a responsible major country", China holds the

expectation of seeking cooperation with the United States, while the United States regards participation in

climate governance as a key action to achieve national recovery and effectively compete with China. Based

on the governance roles, China and the United States have certain positive prospects for cooperation in

promoting low-carbon transformation and implementing climate assistance, but there are also potential

options for competition and confrontation. The role of the two states in climate governance will have a great

impact on the framework of the Paris Agreement and their future interaction.

1 INTRODUCTION

The COVID-19 pandemic, which broke out in early

2020 and has spread around the world till this day, has

profoundly affected the international order.

Uncertainty and instability have significantly

increased in the international community, posing a

great obstacle to the practice of global governance.

The trends of global governance in the post-pandemic

era and China's role have become the focus of

academic discussion. The urgency of climate change

and the serious consequences of disasters make

climate a huge crisis threatening human civilization

in the post-pandemic era, and no country can be

immune from the impact of climate change.

As major carbon emitters and major players in the

international community, what roles will China and

the US play in global climate governance in the post-

pandemic era? Given the respective roles of China

and the US, what are the prospects for China-US

cooperation on climate governance?

https://orcid.org/0000-0002-8415-9398

https://orcid.org/0000-0001-5684-8818

https://orcid.org/0000-0002-2448-1027

2 LITERATURE REVIEW

2.1 Role Theory in International

Relations Studies

The concept of national role is a country's recognition

of its status in the international system, determined by

its role concept and the cognition of other countries

in the system (Holsti 1970). The role also involves a

collectively constructed conceptual structure whose

external meaning is given by interaction (Wendt

1992). The combination of national self expectation

and others’ expectations forms the role orientation of

the state, and the state achieves the role performance

driven by its orientation foundation under a specific

structure (Harnisch 2011).

Gong, H., Yang, Y. and Zang, J.

A Comparative Study on the Role of Sino-US Participation in Climate Governance in the Post-pandemic Era.

DOI: 10.5220/0011151200003437

In Proceedings of the 1st International Conference on Public Management and Big Data Analysis (PMBDA 2021), pages 32-37

ISBN: 978-989-758-589-0

2.2 Framework of the Role’s Internal

Expectation and External

Expectation

Roles come from both the internal expectation and

external expectation of actors (Thies and Breuning

2012). Two variables-interest cognition and identity

perception-could be used as the measurements of

internal expectation (Klose 2018).

2.3 Analysis Framework

Figure 1: Theoretical Analysis Framework.

3 THE ROLES OF CHINA AND

THE UNITED STATES IN

GLOBAL CLIMATE

GOVERNANCE

Since the end of the last century, the climate issue has

gradually drawn the attention of mankind, and the

role definition of China and the United States on the

climate issue has changed to different degrees. As

climate change has become a hot topic in the

international community, both China and the United

States will increasingly regard participation in the

governance on climate issue as an important way to

realize national ambitions.

3.1 Interest Cognition of China

China’s national interest in climate governance has

undergone a transition from denial to positive

acceptance. For China, participation in climate

governance has always been closely related to the

country's development interests. The idea

“development is the absolute principle” has

profoundly influenced the construction of national

interests since the beginning of reform and opening-

up more than 40 years ago. In the early stage of

reform and opening up, China pursued rapid

development to resume production, even at the cost

of environmental pollution in the process, holding

passive attitude to climate problems and global

climate governance cooperation, and argued

environmental responsibility would overburden the

national economic interests. However, since the 18th

CPC National Congress, as the economy

development has entered the new normal stage of

medium-high speed growth, China has begun to take

social and ecological benefits into comprehensive

consideration in the process of economic

development. Although participation in climate

governance will restrain certain development,

economic transformation and upgrading, reducing the

reliance on natural resources and participating in the

global green low carbon development have become

the urgent requirements of sustainable development

of China's national interests. In addition, with China’s

increasing emphasis on soft power in recent years,

building a good national image has become an

important part of China’s national interests. Over the

last decade, China actively promoted the Paris

Agreement, firmly maintained the climate of the

multilateral system, submitted China’s Intended

Nationally Determined Contributions, etc. As the big

emitter in the international community, China tries to

build a more responsible image of the country.

Meanwhile, China is actively putting the green

sustainable economic growth pattern into practice,

providing the Chinese governance plan and

development experience for the world and calling

upon all states to take climate governance into

account.

A Comparative Study on the Role of Sino-US Participation in Climate Governance in the Post-pandemic Era

3.2 Identity Perception of China

The initial identity of China's participation in the

global climate governance process was shaped in

terms of a developing country. Before the signing of

the Kyoto Protocol, the global climate negotiations

highlighted the stark North-South confrontation. As a

developing country, China is relatively cautious in its

cooperation on climate governance, arguing that the

emissions of developing countries are “survival

emissions”, while the emissions of developed

countries are “luxury emissions”, and developed

countries should bear their own responsibilities. With

China rapidly developing, the environmental threat

theory about China emerged in the international

community. Some western media reported Chinese

pollution and western think-tanks also repeatedly

issued reports on the research of Chinese pollution

threat. The serious pollution and scientific research

have gradually deepened Chinese understanding of

the climate problem. In addition, with the continuous

rise of comprehensive national capability, China

increasingly expects to play a more active role in

global climate governance and gradually change its

identity as a "latecomer" in climate governance.

Especially since the 18th CPC National Congress,

China’s diplomatic style has gradually shifted to

comprehensively and actively participating in global

affairs. China’s identity perception in global climate

governance has gradually become a responsible

major country that “plays a constructive role”.

Therefore, China has actively made responsible

commitments to the international community in

addressing climate change. Meanwhile, China also

actively provides capital, technology and equipment

support through the Belt and Road Initiative,

China+G77, engaging in South-South climate

cooperation in order to improve the ability of

developing countries to cope with climate change.

3.3 Interest Cognition of US

Since the climate policy of the Biden administration

was implemented, the US national interest mainly

consists of three aspects. The first is the economic

benefits of climate policy. During his campaign,

Biden proposed the “Green New Deal” to stimulate

economic recovery by combining climate change

policies with the economic agenda of developing a

green economy, promoting clean energy

transformation, realizing new energy utilization and

transforming the economic structure. Biden

advocated the clean energy revolution, planning to

accelerate the construction of the sustainable

economic system and green infrastructure. He hopes

that these policies can create a large number of high-

quality jobs in the process.

Second, the Biden administration is trying to build

the possibility for climate policy to promote social

issues with the political narrative of “climate justice”.

The Biden administration attaches great importance

to environmental justice. It is hoped that efforts on

climate governance can provide justice access for

ethnic minorities and vulnerable groups such as low-

income groups, and deliver assistance to traditional

energy communities such as coal, oil and gas

industries affected by climate policies, so as to

alleviate social conflicts.

Third, the Biden administration hopes to revamp

its damaged national image and restore global

leadership through its climate policy. Biden

announced the return of the US to the Paris

Agreement on his inauguration and held a global

summit on the Earth Day. In his presidency, Biden

showcased his climate ambitions with a series of

domestic and foreign climate policies.

3.4 Identity Perception of US

During his election campaign, Biden put climate

policy at the core of domestic and foreign affairs,

emphasized the government duty to mobilize

enthusiasm in an all-round way, and tried to regain the

leadership in the multilateral climate governance

system. At the same time, the Biden administration

attached importance to leading multilateral climate

cooperation efforts with the establishment of a strong

and professional climate team. To re-establish

leadership among allies, the US frequently engaged

with traditional allies such as the EU, trying to create

cooperation in global governance through

international multilateral cooperation mechanisms.

3.5 The Mutual Expectation between

China and US

China’s expectation of the US’s role in climate

governance under the Biden administration is based

on cooperation principle. In April 2021, Xie Zhenhua,

China’s Special Envoy for Climate Change, and John

Kerry, the US President’s Special Envoy for Climate

Change, exchanged views on bilateral climate

cooperation and issued the China-US Joint Statement

on Addressing the Climate Crisis, which reflects

China’s openness to cooperate with the US on climate

issues. However, political relations and strategic

mutual trust between the two countries have been

severely damaged during the COVID-19 pandemic.

PMBDA 2021 - International Conference on Public Management and Big Data Analysis

Whether China and the US can effectively manage

differences, focus on cooperation, and maintain the

overall stability of basic political relations is the

premise of climate cooperation between the two

countries. For its part, the US has no choice but to

cooperate with China because of its emphasis on the

climate issue. John Kerry visited China shortly after

Biden took office, and President Xi Jinping was

invited to attend the Global Climate Leaders’ Summit

hosted by the US. However, several important

government officials in Biden’s climate team claimed

that China should take on more responsibilities. The

Biden government tried to curb Chinese influence on

climate governance through a series of propaganda

and agenda setting efforts, putting pressure to force

China to accept more responsibility and limit the

development of the Belt and Road Initiative.

Table 1: Table of the roles of Sino-US on climate governance.

Role expectation

External expectation

Interests cognitive Identity cognition

China

1. Transform the mode of

development to achieve

sustainable

2. Safeguard citizen’s

healthy life

3. Improve the national,

enhance the soft power

1. Gradually closer to the

center of the global stage

2. Constructive role in

global governance as a

responsible major state

1. Against the Belt and Road

Initiative to curb Chinese global

influence in the areas of green

trade, finance and technology

2. Improve relations with China,

holding certain contact and

cooperation in the field of climate

U.S.

1. Participate in climate

governance to maintain its

leadership

2. Revive the economy and

solve social problems

1. Pay attention to

cooperating with traditional

alliances

2. Reshape the identity of

global leader by handling

problems

1. China hopes for a wide range

of cooperation on the climate with

the United States

2. The Chinese willing for

cooperation is based on certain

political premises, managing

differences and problems

4 THE INTERACTION ON

CLIMATE ROLES BETWEEN

CHINA AND THE US IN THE

POST-EPIDEMIC ERA

The Biden administration actively deals with climate

issues and seeks to reshape the US leadership on

climate issues in the post-pandemic era. With its

effective measures, material assistance and

experience sharing, China has further established a

positive image of participating in global affairs, and

its role in global governance has gradually shifted

from participants to the leader. In the post-pandemic

era，the interactions between the two key players in

global climate governance will become more frequent

and have a profound influence on the process of

governance.

4.1 China-US Interactions Have a

Profound Impact on the

Governance System

The Paris Agreement is the core institutional

arrangement for current global climate governance

and provides a legally binding framework for global

cooperation on climate governance. At present, the

effectiveness of global climate governance mainly

depends on the implementation of the Intended

Nationally Determined Contributions. As the top two

carbon emitters in the world, national policies of

China and the United States on climate change will

play a decisive role in the process of the Paris

Agreement. The two countries have proposed

ambitious climate policy options and determined to

drive the global low carbon energy transformation

and development of the green economy, increase

capital scale in response to climate change and

provide technical assistance for a long time, which is

A Comparative Study on the Role of Sino-US Participation in Climate Governance in the Post-pandemic Era

conducive to the implementation of Paris Agreement

and its detailed clauses.

4.2 The Interests Cognition Brings

about the Possibility of Positive

Role Interaction

China and the United States share similar national

interests in promoting the transformation and

upgrading of economic development and accelerating

the use of clean energy. For both sides, the intention

of participation in climate governance is to solve the

energy crisis which is the dilemma of development

prospects caused by the old high-carbon industrial-

driven economic development, and to solve a series

of social and public health problems. Driven by the

support of China and the United States, the trend of

green, clean and low-carbon global energy and

economic development will usher in a bright future.

There are also positive opportunities for interaction

between the two countries.

4.3 The Identity Perception Brings

Positive Prospects for Aid

Interaction

Both countries will provide foreign climate assistance

to enhance the capacity of developing countries to

cope with climate problems and achieve economic

development upgrading. They have determined to

form institutionalized aid practice in the future. In the

future, a new tripartite cooperation mode in

international climate assistance may be adopted by

China and the United States to realize assistance

cooperation under the increasingly similar identity

expectations of the two countries.

4.4 The Different External

Expectations Predict the Prospect

of Competitive and Conflicting

Interaction

In addition to re-engaging with China on the

necessary climate cooperation, the Biden

administration still hopes to exert pressure on China

on climate issues, force China to assume more

responsibility for emission reduction and launch

strategic competition with China. In the post-

pandemic era, low-carbon green economic recovery

will become the mainstream trend and all countries

have invested a lot to upgrade clean energy

technologies to gain technological advantages. There

will be a long-term technological competition

between China and the United States. The United

States can support the trade and investment of low-

carbon clean technologies and products through

financing regulatory policies and trade policies to

constantly consolidate its leading position in global

clean energy technology, achieving the strategic

purpose of continuing to suppress China in the field

of technology.

5 CONCLUSION

Under the Biden administration, the United States

declared to return to the global climate governance

framework, the validity of the framework is

substantially increased. With the scientific

understanding of the impact of climate change, China

increasingly considers the upgrading of its

development mode and reduction of greenhouse gas

emissions as the only way for the country to achieve

sustainable development. The change in the cognition

of national interests makes China significantly more

willing to participate in climate cooperation. This

paper attempts to propose a framework for analyzing

the role of states in governance practice, which takes

interests and identity as variables, reflecting the

dynamics and complexity of the evolution of

international relations. Based on the roles of China

and the United States in climate governance practices,

this paper attempts to analyze the prospect of

interaction between the two countries in climate

governance from a theoretical perspective, so as to

provide reference for future academic research on

cooperation and competition between China and the

United States in the field of climate.

ACKNOWLEDGMENT

This research is supported by the Shandong

University Student Research Training Program,

“Dissemination of Ideas and Regional Approaches:

China's Participation in Global Climate Governance

Based on Big Data” (B21064).

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A Comparative Study on the Role of Sino-US Participation in Climate Governance in the Post-pandemic Era