One World, Two Orders

With the occurrence of today’s cataclysmic crisis, the world is witnessing such immense upheavals and extensive readjustments, that it is now standing at a crossroads of history. The COVID-19 pandemic, which has been rampaging across the globe, is catalyzing profound changes unseen in a century. As this unprecedented transformation interacts and clashes with the current international order, an escalating contention between two ordering principles is on the horizon. Since anyone may fall victim to the virus, only by sticking together through thick and thin can we triumph over this common enemy of ours. Global governance calls for global wisdom and global responsibility, but the fierce rivalry between a multilateral order and a unilateral order is only getting more intense. Cooperation among major powers is difficult to achieve, particularly as China and the United States, the world’s two largest economies, are increasingly going separate ways. Confronted with such a destructive pandemic as COVID-19, the most urgent action is the strengthening of international cooperation to safeguard human health and well-being. The international community expects the five permanent members of the United Nations Security Council to jointly initiate the needed global response to the pandemic and to bridge these difficult times together with the rest of the world.

A Community from Imagination to Reality

In the course of human history, many battles have been fought against

Ruan Zongze is Executive Vice President and Senior Research Fellow at China Institute of International Studies (CIIS).

epidemics and diseases, and many attempts have been made to constantly arouse awareness of a community for mankind. Amid today’s profound changes unseen in a century, this fact has become even more conscious, namely that in this new historical process the destiny of all mankind is interconnected and a community is no longer just a castle in the air. While ideologically motivated prejudices, the rhetoric of a “clash of civilizations,” political divergence and other man-made complications are creating divisions among the peoples of the world and mutual distrust between countries, the virus, as humanity’s common enemy threatening the lives and safety of all mankind, is now binding the destiny of people in different countries closely together. After all, we are all in the same boat. Throughout human history, cholera, smallpox, the bubonic plague, the 1918-1919 flu pandemic, SARS, the H5N1 avian flu, the H1N1 flu, Ebola, and MERS have ravaged the world, sometimes concurrently, and posed tremendous threats to people’s lives and safety. In the 21st century, characterized by a highly-sophisticated globalized economy, any epidemic can be transmitted with unprecedented speed and scope, unfolding with a profound impact. Whether it is a pandemic, an ecological disaster, climate change, a food crisis, or a shortage of water resources, crises can spill over to multiple dimensions and merge with one another, endangering human survival and development. In his March 2020 phone conversation with UN Secretary-general António Guterres, Chinese President Xi Jinping underlined that the outbreak is a fresh reminder that mankind rise and fall together. He underscored the imperative for all in the world to recognize that mankind has a shared destiny and future and must therefore look out for each other and marshal a collective response to global challenges, adding that “we must make the planet – our only home – a better place for all.”

Protecting people’s lives is of the highest priority, and human security stands above everything. As the planet we live on is turning into a global village, the health of every individual has become vitally interrelated with that of others. No country, regardless of their power, can sustain as an island or be completely free from the threat of a virus that knows no borders.

The birth of the World Health Organization on April 7, 1948, marked the institutionalization of public health governance on a global level, and stands as a milestone in the human history of struggles against diseases. The WHO has been playing an indispensable role in promoting international public health measures, uniting with the international community to address public health emergencies, and improving the mechanisms in global public health governance. Since the outbreak of COVID-19, the WHO has been the central coordinator for advancing international anti-epidemic cooperation in the face of an increasingly severe situation, for which it has been widely recognized and highly spoken of by the international community.

The battle against the pandemic is a war that concerns people’s lives and their safety. To defeat this virus, an invisible enemy, we do not need aircraft and artillery, but rather sufficient medical resources. When the pandemic hit and swept across the globe, most countries were barely prepared and had to react hectically to the challenge. Medical masks and ventilators suddenly became strategic materials that were difficult to obtain. Even highly developed countries with the most advanced technology and equipment experienced desperate moments when medical facilities were overwhelmed, not to mention all the weaker countries that had been lacking such resources long before the pandemic. The anti-pandemic battle has taught countries across the world to invest more in medical resources to be better prepared for any imponderables. What is noteworthy is that traditional Chinese medicine has made an indispensable contribution to this fight. In particular, the combination of traditional Chinese and conventional Western medicine in the treatment of COVID-19 patients has saved many lives, which has been successfully proven by frontline practices, and which is a convincing testimony that the two schools of medicine are not inevitably bound to be trapped in pointless competition, but are able to complement and mutually enrich each other.

Greater risks and challenges brought by the novel coronavirus pandemic are yet to come. With massive economic and social implications, the pandemic will lead to the first ever negative annual growth of the world economy since the end of the Second World War. The spillover effects of this

scenario are especially worthy of attention, including aggravated inequality, social hatred, and racial discrimination, which could result in turbulences and chaos for society. Those developing countries with weak public health systems would be among the hardest hit. For the countries which are still subject to economic sanctions, the pandemic would exacerbate their humanitarian disasters as they even have no access to materials to combat the epidemic. Therefore, for the sake of humanity’s security, the international community ought to strengthen coordination, remove barriers, lower tariffs, and facilitate trade, thus creating favorable conditions for a global economic recovery and social development.

Two Orders

In the context of complicated international relations, the rivalry and clash between multilateralism and unilateralism is getting increasingly fierce. Based on the idea of community, multilateralism aspires to play a positive role in addressing the common challenges of mankind. Problems of a global nature can only be resolved in a multilateral approach, which is consistent with the trend of the times of pursuing mutual benefits and win-win outcomes. By contrast, a unilateral order is based on the dominance of a single self-centered power which has adopted a beggar-thy-neighbor policy, believes in the law of the jungle and aims for zero-sum results. The outcome of the contest between these two orders will determine the direction of the world’s future.

Admittedly, multilateralism is facing new challenges under these circumstances. On the one hand, a rapidly advancing globalization has given rise to the emergence of innumerable regional and global multilateral mechanisms, while the prevalence of enhancing interconnectivity has further uplifted the common interests of the international community. In this way, it has been proven that multilateralism and the international institutions that embody that spirit are conducive to promoting regional and global common interests while also protecting national interests. On the other hand, globalization is blurring the borders between nation-states. In times

of crisis, rediscovering the “lost nation-state” has become an emerging social movement, which gives new space to state centralism. The pandemic has not only severely impacted the multilateral regime, but also fully exposed the inherent defects of multilateral mechanisms. In the face of the crisis, some mechanisms have responded slowly with limited contributions, practically performing no function.

Crises can bring great powers closer together or tear them apart. Since the end of the Cold War, major disruptions such as the September 11 terrorist attacks, the global financial crisis and the Ebola pandemic have induced great powers to quickly set aside differences and establish cooperation platforms. The force of international solidarity has boosted confidence in jointly overcoming difficulties. Reflecting upon these vivid experiences, we can conclude that international cooperation is the best approach to handling any crisis. By comparison, great-power cooperation has witnessed slow progress even months after the COVID-19 pandemic erupted. Countries have been taking their own countermeasures rather than coordinating their response with others. Due to the absence of effective international coordinating mechanisms or initiatives, the self-centered mentality of some states has made a comeback. Countries have been taking care of their own affairs, and this has further aggravated self-centrism. Besides, ideological prejudices have developed into a “political virus” during the pandemic, for example, some politicians are keen on playing the blame game and shifting responsibilities on others, which has seriously exacerbated the potential for great-power conflict. The United States and the European Union have turned against each other because of their scrambling for medical supplies, which has further increased the discord across the Atlantic. The relations between the US and Russia have also been seriously damaged once again, which makes the road toward rapprochement ever less likely.

This round of disputes between great powers reflects in essence an aggravation of the rivalry between multilateralism and unilateralism. “America First” is nothing but a disguise for unilateralism, and it transforms the US from a provider of international public goods into a lone ranger that goes

its own way. So far, the US has withdrawn from a variety of international mechanisms and agreements which it deems have constrained its operations. This has entailed dangers to the stability of the multilateral international system. In an attempt to frame this war between humanity and the virus as a geopolitical competition between great powers, the US has been playing the blame game and shifting the responsibility on others, which has distracted its focus and eventually gave more leeway to the virus. By threatening to withdraw funding from the WHO, the US is touting its arrogant logic that whoever contributes the most should be listened to. However, the WHO belongs to the entire family of nations, rather than to the US alone. On April 24, WHO Director-general Tedros Adhanom Ghebreyesus announced the launch of an international collaboration to accelerate the development, production, and equitable distribution of vaccines, diagnostics, and therapeutics for COVID-19, but the initiative was boycotted by the US. Previously, due to US objection, the G20 Health Ministers’ Meeting failed to issue a communique that committed to strengthening the WHO’S mandate in coordinating the response to the global coronavirus pandemic. At this critical moment of the pandemic, the US is isolating itself by turning away from the WHO. The unilateral approach of the United States has weakened global joint efforts to combat the coronavirus.

Despite such US actions, unilateralism has been widely opposed and rejected by the international community. More and more countries have come to the conclusion that they must join hands and help each other in the face of imminent global challenges, and that multilateral mechanisms are an effective instrument to address these challenges. The WHO is internationally endorsed to play the leadership role and mobilize global efforts against the pandemic to save more lives. The statement issued by the G20 special summit in late March promised to present a united front against the common threat of COVID-19. The 74th UN General Assembly passed a resolution specifically on COVID-19 in early April, urging for closer multilateral cooperation to address the pandemic. The strengthening of regional cooperation between China and 17 Central and Eastern

European countries (CEECS), between ASEAN and China-japan-south Korea, and between ASEAN and China has also contributed to improving mutual assistance in epidemic prevention and control. Meanwhile, China’s anti-pandemic cooperation with Russia and European countries has also experienced some highlights.

The trend towards more globalization will not be simply aborted by the pandemic. In fact, the destiny of humanity is closely intertwined with globalization. No single country can shirk the responsibility to jointly safeguard global public health security. It is quite unimaginable that countries would opt for isolation and alienation from others after the pandemic. Due to the manifold successive challenges brought about by this pandemic, a protracted war against the virus should be expected. A unilateralist and beggar-thy-neighbor approach would not make anyone safer; only by working together to achieve universal security can individual security be warranted. Multilateralism is the key concept to fulfilling this objective.

Shifting Roles of China and the United States

China and the United States have cooperated well on previous occasions of crisis management, which has not only boosted their bilateral relations, but has contributed considerably to also maintaining peace and stability in the world. Unfortunately, there is no return to such “good old days.” As China-us relations had witnessed a sharp downturn due to trade frictions, the current pandemic should have been used as an opportunity for the two countries to cooperate. However, as the US seems to obstinately cling to the wrong path, mutual distrust between the two sides has exacerbated, and new discord and uncertainties have raised doubts about the future of bilateral relations.

Why were China and the US able to seek common ground, put aside differences and cooperate following the September 11 attacks and the 2008 global financial crisis, but are going separate ways this time in the face of a surging pandemic? When the former two crises erupted or originated in

the US, Washington did not hesitate to take swift action and demonstrate leadership. Because China interacted with and participated in America’s leading role, the two countries were able to focus on their common interests and forge a closer relationship. By contrast, the current pandemic first broke out in China, which forced it to take the front position in the pursuit of resisting the virus. Confronted with this sudden challenge, China resolutely took the most comprehensive, severe and thorough prevention and control measures in its battle to contain the spread of the coronavirus, which bought precious time for the international community. While implementing the necessary prevention and control measures for itself, China has also been offering humanitarian assistance to all countries in need. By accelerating the resumption of a normal level of production, China has been continuously supplying urgently needed medical materials to the rest of the world, which has effectively supported other countries’ ability to fight the pandemic. China shows empathy for the suffering of other states instead of standing idly by. This is not simply a return for a favor given to China in the early stages of the outbreak, but rather China’s proactive contribution out of an international humanitarian spirit, and based on the notion of a community with a shared future for mankind.

In contrast with the other two previously mentioned crises, the roles of China and the United States have undergone a remarkable shift in the midst of this sudden major global public health emergency. While China has now taken over the leading role, the US seems overloaded with its own affairs, which has resulted in a vacuum of global leadership. In fact, since taking office, the Trump administration has consistently been looking only after its own interests, shirking due responsibilities, and opting to abandon its international leadership role. Its passive approach in the current pandemic is only a continuation of its attempts to withdraw from global affairs.

While China has no intention to dominate the world in place of someone else, its mere assumption of due responsibility within its capacity is being misinterpreted as aiming to fill the vacuum left by the US. It’s just that no matter what China is doing and how, its actions are always being

criticized by those with ulterior motives. With the mentality of great-power competition and zero-sum game, the US has been continuously downplaying and stigmatizing China’s contributions, in fear of a perceived rise of its power. By hyping the narrative of China allegedly “exporting its social model” and conducting “mask diplomacy,” and by accusing China of striving for international leadership and an expansion of geopolitical influence, the US is simply missing the opportunity for joint action in combating the virus.

Particularly, some in Washington are capitalizing on the pandemic in an attempt to weaken others and create divisions. At the beginning of the outbreak, several US politicians, who tend to take advantage of and even gloat over the misfortune of others, had declared China’s crisis to be an opportunity for America. While the American people generously offered China help, the US government only paid lip service to its commitment of providing assistance. However, when the US itself was heavily hit by the pandemic, China still provided medical materials for the US regardless of previous disputes. As of April 20, China had supplied more than 2.46 billion masks to the US, which means in arithmetical terms every American would receive seven masks. Despite all this, some politicians in Washington have evaded any responsibility, covered up their failure to address the outbreak, and instead have made China the scapegoat. This irresponsible politicization of the pandemic and stigmatization of China’s response has added further injury to the already dismal China-us relations. Due to its greater mobilizing power and influence on international public opinion, the US actions have also been more destructive, as it could easily mislead those people with inadequate knowledge about the situation to follow suit and stir up trouble. Multilateral mechanisms once served as an important buffer zone between China and the US, but this has been gradually vanishing due to Washington’s continuous withdrawal from international organizations and agreements. The increasingly narrow maneuvering space has made Chinaus engagement more difficult. Unfortunately, the current pandemic crisis has failed to bring about China-us cooperation, but instead worsened the contradictions between the two countries, turning the strategy of great-power

competition into a self-fulfilling prophecy.

There are no bystanders nor culprits in view of the virus; anyone could fall victim to it. As the whole world is giving its absolute best to cooperate in fighting the pandemic and bridging these difficult times together, China cannot be absent. After all, all human beings are waves of the same sea, leaves of the same tree, and flowers of the same garden. Helping others is also helping oneself. If friendly cooperation between China and the US is unlikely even in the face of such a global challenge as this pandemic, chances of any constructive bilateral cooperation in other areas will be even slimmer. However, this pandemic, as an unforeseeable global public health crisis, should not be mistakenly reduced to an irreparable crisis between China and the US. In the post-pandemic era, the world will face the incredibly arduous task of an economic recovery and rebuilding, which once again will require the world’s two largest economies to put aside differences and meet each other halfway. In his phone call with US President Donald Trump on March 27, President Xi said that bilateral relations are now at a critical juncture, that both nations stand to gain from cooperation and lose from confrontation, and that cooperation is the only correct choice for both sides. Hoping that the US can take concrete steps to improve bilateral relations, he called for joint efforts from both sides to bolster cooperation in epidemic containment, and develop a China-us relationship featuring non-confrontation, nonconflict, mutual respect and win-win cooperation.

Bearing in mind the current and future unfolding of the situation, to safeguard global public health security, it is necessary to strengthen and improve the Un-centered global governance system, support the WHO’S leading role in global anti-epidemic cooperation, boost the G20’s communication and coordination functions, and jointly build a health community for mankind. At this critical moment of history, leaders of the five permanent members of the UN Security Council should seek common ground while shelving differences, and collaboratively exert global leadership in fighting the pandemic with firm confidence.