Three former U.S. national security advisers who helped to launch the modern U.S.-Chinese relationship--or sustain it through significant tensions and change—appeared at USIP on March 7 to reflect on the personalities, strategic priorities and complexities in play through the creation of one of the world’s most important bilateral relationships.

Henry A. Kissinger, Zbigniew Brzezinski and Brent Scowcroft spoke at a conference co-sponsored by the Institute and the Richard Nixon Foundation, "The Week that Changed the World: President Nixon’s Historic Trip to China and the Future of U.S.-China Relations". The conference brought together key players in the U.S.-Chinese relationship 40 years after the Nixon trip to China, which took place February 21-28, 1972.

Dr. Henry Kissinger interview with Tom Brokaw
Dr. Henry Kissinger interview with Tom Brokaw

Kissinger, who was the U.S. national security adviser from 1969 to 1975, offered some behind-the-scenes glimpses of the diplomatic maneuvering involved with his then-secret July 1971 mission to Beijing and his ensuing October 1971 visit, which laid the groundwork for the historic February 1972 trip by Nixon. The Nixon administration had some difficulty initiating meaningful contact with the Chinese government. “We were dropping hints all over the place,” he recalled. Nixon himself issued instructions that “if you ever see a Chinese leader, tell him we want to talk.” Kissinger and his China policy aides flew to Beijing in July 1971 unbeknownst to the news media. In the Chinese capital, he was out of communication with the White House. But he nonetheless was able, during the October trip, to negotiate in advance most of what would be known as the Shanghai Communique—save for the very sensitive segment on Taiwan. “Nixon and I had spoken so frequently that I knew his thinking,” said Kissinger. He said he “desperately tried not to meet Mao on my first visit,” hoping to ensure that the first American official to meet China’s paramount leader would be Nixon himself. His first impression upon arriving in the Chinese capital: “I was struck by how empty the streets were.” But also on his mind, Kissinger recalled, were the risks if his mission failed to succeed in arranging a formal invitation for Nixon to visit. “It would have been a huge humiliation,” he said.

Kissinger’s main interlocutor was Zhou Enlai, the worldly Chinese premier. Zhou had “wonderful human instincts,” said Kissinger. “He was elegant, thoughtful, well prepared, infinitely patient.”

China’s paramount leader, Mao Zedong, was a man of “demonic capacities,” but in term of his analytical capabilities, according to Kissinger, “I have met nobody who was better than him.” Mao liked to tell stories and “conduct his conversations in a Socratic manner,” Kissinger said, addressing his interlocutors with such phrasings as, “Have you considered the following?”

“We wanted to build China into the international system,” Kissinger said. Going forward, “We have to learn, as a country, that competition with China is inevitable in some respects,” he said. “Both of our countries have to avoid the easy temptation to behave as if the books are balanced at the end of every month.” He added, “The relationship between the United States and China is a key to the peace of the world.

Dr. Zbigniew Brzezinski
Dr. Zbigniew Brzezinski

Brzezinski, President Jimmy Carter’s national security adviser from 1977 to 1981, oversaw the normalization of U.S. relations with the People’s Republic of China that commenced on January 1, 1979. Brzezinski said that in the years following Nixon’s scandal-driven resignation from the presidency, “some of the momentum was lost.” One problem was the way in which Beijing perceived the U.S.-Chinese-Soviet “triangular dynamics.” Said Brzezinski, “The Chinese were profoundly suspicious that in this triangular game that they were being used by the Soviets and by us.” When Carter sent him to Beijing, the president cautioned him not to “overplay” the anti-Soviet side of the equation and not to “overflatter” the Chinese. The United States agreed to China’s call for accepting an “anti-hegemonic posture.”

Brzezinski described Chinese leader Deng Xiaoping as very direct, “even sarcastic” in conversation, apparently reflecting his penchant for probing U.S. intentions. Deng once asked Brzezinski if the United States feared offending the Soviet Union. Brzezinski’s retort: “I’d be willing to make a bet with you as to who’s less popular with the Soviet Union.” Deng attended a private dinner at Brzezinski’s home and later invited Brzezinski and his family to China after he left the White House. He called Deng one of the two most impressive political leaders he has met.

On the critical issue of Taiwan, Brzezinski said that during normalization talks he advocated the idea that the issue would have to be worked out over time among the Chinese themselves and that the United States hoped it would be resolved peacefully. But to the surprise of the Americans, as normalization took effect, Deng seemed to assume that arms sales would be discontinued immediately, Brzezinski said. The U.S. view was that the sales—which remain a highly sensitive issue to this day--would be suspended that year, then continued. The two sides moved forward, however, agreeing to disagree, he said. The normalization breakthrough, he said, produced “a new strategic alignment” that yielded rapid cooperation on intelligence, on Vietnam and Cambodia, on joint efforts to oppose the Soviet occupation of Afghanistan and on trade and scientific cooperation.

Looking ahead, Brzezinski warned of “a growing tendency toward demonization of us toward them, by them toward us.” He cited three priority issues on the bilateral strategic agenda that he said will need to be addressed: the scope of U.S. air and naval patrols in seas near China; China’s military buildup; and the future of Taiwan. “That’s not going to wait indefinitely,” he said of the Taiwan question. Nor can the United States continue to be the source of weaponry for Taiwan without negative consequences for the relationship, he said. In the long run, Brzezinski said he expects “accommodation between the two, depending upon the scale of China’s own geopolitical success.

Gen. Brent Scrowcoft
Gen. Brent Scrowcoft

Scowcroft was a relatively junior military aide in the White House at the time of the Nixon visit and was on Kissinger’s advance trip to Beijing. Later, as President George H.W. Bush’s national security adviser when China launched its deadly 1989 crackdown on protesters in Beijing’s Tiananmen Square, he was credited with helping to steady a shaken relationship. 

Back in 1972, on the flight to Beijing, Scowcroft described the atmosphere as “almost breathless—almost electric.” Said Scowcroft, “This was literally two separate worlds coming together….It was like people from Mars talking to people from Earth. Our cultures had been completely separated since 1948—except for some hostility.” 

Scowcroft said that Nixon understood how his political standing—as a famously anti-communist conservative—positioned him better than a Democrat would have been to carry out the China breakthrough. Had a Democratic leader like Hubert Humphrey attempted to do the same, Scowcroft said, the right would have said that Taiwan cannot be abandoned. Nixon used his reputation to implement a policy that made sense intellectually, Scowcroft said. Over the decades since, China policy stands out as “the most successful” part of U.S. foreign policy through that period, he said.


Related Publications

What Does the Emerging China-Africa Minerals Consensus Mean for U.S. Initiatives?

What Does the Emerging China-Africa Minerals Consensus Mean for U.S. Initiatives?

Thursday, September 12, 2024

The recently concluded Forum on China-Africa Cooperation (FOCAC) provided a revealing glimpse into the current state of the Africa-China relationship. On the one hand, the official imagery and language of the summit emphasized constancy — a vision of a stable South-South relationship stretching from the past into the future. On the other hand, the summit also projected a relationship that is being reshaped for a new decade.

Type: Analysis

EconomicsEnvironment

China’s Bid for a Bigger Security Role in Africa

China’s Bid for a Bigger Security Role in Africa

Thursday, September 12, 2024

Last week, China welcomed more than 50 African leaders to Beijing for the ninth Forum on China-Africa Cooperation (FOCAC), which has met every three years since 2000 to coordinate economic and political relations. FOCAC is China’s main platform for Belt and Road-affiliated projects and Chinese plans for infrastructure development have generally dominated the action plans that come out of the forum. In recent years, exchanges between Chinese and African political parties, legislatures and local governments have also been a focus of the forum. China has also found in FOCAC a source of support for international relations principles it prioritizes, including noninterference and its "one China" principle. While security cooperation has been an element of FOCAC for more than a decade, this year’s forum saw an unprecedented Chinese emphasis on its role in security on the continent.

Type: Analysis

Global Policy

How China Is Leveraging Security Cooperation in Central Asia

How China Is Leveraging Security Cooperation in Central Asia

Monday, September 9, 2024

The July 2024 Shanghai Cooperation Organization (SCO) summit in in Astana, Kazakhstan provided China with another platform to highlight its vision for global governance and security. While the SCO has expanded to include states beyond Central Asia, the organization’s focus on fighting terrorism, separatism and extremism — the so-called “three evils” — is particularly relevant for China in Central Asia, where Beijing looks to test and advance its security cooperation strategies. The SCO, the Belt and Road Initiative (BRI) and the Global Security Initiative (GSI) are key components of China’s ambition to offer an alternative to what it calls “Western hegemony” and to resist external interference in the domestic affairs of SCO states.

Type: Analysis

Global Policy

At Pacific Islands Forum, Tensions Flare Over Taiwan, Geopolitics and Climate

At Pacific Islands Forum, Tensions Flare Over Taiwan, Geopolitics and Climate

Thursday, September 5, 2024

Last week, the Pacific Islands Forum (PIF) met in Nukuʻalofa, Tonga, to discuss the challenges affecting the region. The PIF is an intergovernmental organization with the purpose of enhancing cooperation among the countries and territories of Oceania, including Australia, New Zealand, 14 independent Pacific Island countries, and France’s territories of New Caledonia and French Polynesia. China and the United States interact with the PIF as dialogue partners and the Pacific Islands have emerged in recent years as another arena of great power competition.

Type: Question and Answer

EnvironmentGlobal Policy

View All Publications