A US envoy and a good listener

On Feb 4, the US Senate’s Foreign Relations Committee approved President Barack Obama’s nomination of Senator Max Baucus (Democrat from Montana) to become US ambassador to China. The full Senate confirmed Baucus’ nomination several days later.

The appointment of the veteran lawmaker (the 72-year-old was first elected to the US Senate in 1978) and chairman of the Senate Finance Committee has raised some eyebrows in the United States and China. What considerations prompted Obama to nominate Baucus? How much does Baucus know about China or Asia? What might one expect during his tenure as US ambassador to China? As with any important presidential appointment, many questions have been raised.

It is a common practice for US presidents to use diplomatic appointments to reward big financial contributors, friends and political allies. According to most estimates, roughly 30 percent of US’ diplomatic postings overseas go to these political appointees rather than career diplomats. In some regions of the world such as Western Europe, more than 70 percent of the jobs are political appointments. When campaigning for president in 2008, Obama promised to end this practice. But he has not lived up to that pledge. His appointment ratio (30 percent political/70 percent career) mirrors the record of his predecessor George W. Bush.

To be sure, Senator Baucus is a political appointee. But it would be unfair to compare him to someone like George Tsunis, a hotelier who donated more than $1.3 million to the Obama campaign in 2012. Tsunis, the president’s choice for US ambassador to Norway, proved to be an embarrassment when testifying during his confirmation hearings.

It is likely that three considerations led Obama to nominate Baucus as the next ambassador to China.

First, the lawmaker had announced his intention to retire and not seek re-election in 2014. His “early retirement” will enable Montana Governor Steve Bullock to appoint a fellow Democrat to replace Baucus as senator. The replacement will run with the advantage of incumbency and thereby improve the Democrats’ chances of holding onto their majority in the US Senate.

Second, Baucus appears to be a bit of a “maverick” in US politics. At times, he has sided with the Republicans (he voted for the Bush tax cuts in 2001). Although he helped steer Obama’s Affordable Care Act through Congress, he also grabbed headlines after publicly warning Kathleen Sebelius, secretary of health and human services, that the rollout could be a “huge train wreck”. The prediction infuriated administration officials. With Baucus out of the country, administration initiatives might receive less scrutiny in the Senate Finance Committee.

Third, Baucus has extensive experience in international trade issues. He has traveled to China nine times and led efforts to bring China into the World Trade Organization. He was also instrumental in helping the US and China establish Permanent Normal Trade Relations in 2000. His expertise appears to square nicely with the administration’s views on economic ties with China, particularly sensitive questions related to currency values, intellectual property rights, human rights and the environment.

During his confirmation hearings, Baucus shocked some observers by acknowledging that, “I am no real expert on China.” However, this selfdepreciating statement might best be interpreted as a willingness to learn and to keep an open mind. The seasoned politician proclaimed that when dealing with his Chinese counterparts he plans to “try to understand the other person’s assumptions, the other person’s premise”.

Baucus promised to “ask questions, positive questions, non-adversarial questions and try to figure out where they’re coming from”. He also contends that when one listens “the more likely it is you’re going to find little insights and new ways to find a solution here”.

In many respects, Baucus’ approach to relations with China represents a refreshing change from that embraced by many US lawmakers — including the “China experts” serving on the Senate Foreign Relations Committee. Indeed, transcripts of the confirmation hearings reveal that some senators believe all the difficulties in the East China Sea may be traced to China. Senator John McCain (Republican from Arizona) criticized China as “a rising threat” that seeks to be “the dominant force in Asia”. He argued that the solution to regional problems is a closer US alliance with Japan.

McCain and others like him appear not to understand that many of the troubles in the East China Sea actually may be traced to a series of unsound policies embraced by Japan. The policies range from the “nationalization” of part of Diaoyu Islands in 2012 to the stubborn refusal to even acknowledge that a dispute exists in the East China Sea.

What might one expect from the new US ambassador to China? Given the evidence at hand, it appears that Baucus will seek to use his new position to pursue economic agreements and advance deals that will provide US workers with jobs. When negotiating with Chinese authorities, he will be a strong advocate for US interests. But he also will keep an open mind and be a good listener. And he will assume his new post with unbounded enthusiasm.

As the senator explained in December, he is ready for “a whole new adventure, a whole new chapter”. The author is distinguished professor of political science and director of the Graduate Program in Global Studies at Missouri State University.