Peter Drysdale
China’s ‘true multilateralism’ as an alternative to Washington
Gu Bin 8/7/2025
China’s commitments at the May 2025 ASEAN–China–Gulf Cooperation Council (GCC) Summit and the third China–Pacific Island Countries Foreign Ministers’ Meeting go beyond mere diplomacy. They mark Beijing’s strategic recalibration towards institutionalised multilateral frameworks that prioritise non-traditional security issues, offering a deliberate contrast to Washington’s unilateralist protectionism.
China’s enthusiasm about multilateralism is not novel, but its framing has been strategically recalibrated. Since the 1990s, scholars have debated whether China would integrate into the existing international order as its activism in international organisations grew. But Beijing is now championing an alternative ethos of ‘true multilateralism’ — a concept first articulated by President Xi Jinping in 2021 — calling for collective efforts to address transnational challenges.
Beijing’s ‘true multilateralism’ has two main connotations. First, existing multilateral frameworks are perceived as disproportionately shaped by Western powers, failing to adequately represent the interests of Global South countries. Second, China contends that the United States has co-opted multilateralism and international institutions to serve unilateral objectives. Beijing argues that Washington’s approach of ‘pseudo-multilateralism’ undermines the foundational principles of the international system.
China’s non-traditional security-centric approach to multilateralism reflects a calculated strategy amid intensifying US–China competition. While small and middle powers strive to navigate this rivalry without aligning explicitly with either side, Beijing offers an alternative. By promoting ‘true multilateralism’, China positions itself as a representative of the Global South, appealing to countries that feel marginalised by the current international framework and advocating for a more equitable international order that resists hegemonic practices.
At the 2025 ASEAN–China–GCC Summit, Premier Li Qiang warned that escalating tariffs and unilateral tactics were threatening to fracture the international order, calling on all sides to set a global benchmark in openness, development cooperation and cross-civilisational integration.
Rather than over-relying on trade to project soft power, Beijing now approaches multilateralism with a broader focus on non-traditional security issues, encompassing areas such as climate change, food security, digital governance and people-to-people exchanges. This pivot amplifies the spillover effects of economic cooperation and broadens the scope for collaboration with other countries, cultivating deeper ties while avoiding the sensitivities associated with traditional security alliances.
The non-traditional security framework often resonates with existing priorities, leveraging China’s resources and expertise to address shared regional concerns. For instance, the ASEAN–China–GCC Joint Statement prioritises economic cooperation, food security, climate adaptation and digital connectivity — areas that have long been emphasised in ASEAN summits.
Many Southeast Asian and Pacific Island countries have historically employed a hedging strategy, working with the United States on security while engaging China economically. Recognising this dynamic, China seeks to enhance its leverage by taking over the ‘middle ground’ through non-traditional security initiatives, pursued through a less sensitive lens than traditional security issues. This approach alleviates pressure on partner countries to choose sides, providing reassurance that they will not be dragged into direct confrontation. Unlike bilateral agreements, multilateral frameworks help diffuse tensions and make cooperation possible amid intensifying geopolitical competition.
By focusing on non-traditional security issues, China reaffirms its commitment to international development and legitimises its agenda-setting role in global governance. While the United States has historically supported various non-traditional security initiatives with regional partners, the Trump administration’s USAID shutdown and the imposition of unilateral tariffs have undermined US credibility in international development. China aims to capitalise on this opportunity and position itself as a moral leader, branding itself as a provider of certainty.
This non-traditional security-centric approach is also underpinning China-led multilateral frameworks. The Shanghai Cooperation Organisation has expanded beyond its traditional security mandate to incorporate a more diversified cooperation framework, interacting with the Belt and Road Initiative.
Chinese-style multilateralism offers an attractive alternative for countries seeking to advance their economic development, address transnational challenges and maintain domestic stability amid a complex global landscape. Underpinned by a development agenda, this approach can potentially serve as a catalyst for growth and transition, especially in areas such as climate financing, green technology and digital economy.
But these projects may also generate new dependencies on China. The Philippines has increasingly relied on Chinese investment and technology for its green transition despite ongoing territorial disputes in the South China Sea, raising concerns over energy security, transparency and geopolitical influence. China’s climate commitmentsin the Pacific Islands have also been viewed with suspicion, with China’s domestic economic headwinds raising questions about the sustainability of green loans and climate grants.
Concerns over digital sovereignty, data security and AI governance are also emerging. Soft connectivity provides China with strategic leverage in US–China competition, but it exposes partner countries’ data to risks associated with China-led digital infrastructure. And as people-to-people exchanges deepen, concerns over cultural identity may arise. This is particularly relevant in Southeast Asia, which is home to the largest population of ethnic Chinese outside China.
These changes represent a decisive shift in the future of multilateralism within the region. Countries must carefully navigate their own priorities across various domains, balancing the opportunities of non-traditional security cooperation with China against the imperatives of maintaining energy autonomy, digital sovereignty and institutional transparency.
Gu Bin is PhD Student in International Relations at the S. Rajaratnam School of International Studies (RSIS), Nanyang Technological University, Singapore.