Xin Bao and Yun Chuan, the newest giant pandas to arrive in the United States in over two decades, made headlines when they landed on June 27th. After a journey spanning more than 7,000 miles, the pandas were welcomed into the newly expanded Panda Ridge at the San Diego Zoo. Their arrival has sparked widespread excitement both locally and internationally, not only for the pandas themselves but also for the diplomatic significance of their presence.
China's "panda diplomacy" has long been a fundamental tenet of its international policy, symbolizing a unique blend of soft power, cultural exchange, and strategic allegiances. However, recent developments indicate a shift in China's approach to panda diplomacy, driven by both changing global dynamics and domestic considerations.
As a symbol of bilateral ties, China’s deployment and recalling of pandas has developed into a measure of their kinship in the international community; becoming a conversation starter for political analysts, academicians, and people worldwide.
What is Panda Diplomacy?
Though Xin Bao and Yun Chuan have gathered crowds for their cuteness and friendly behavior alongside the San Diego Zoo’s larger conservation efforts, the two pandas have unraveled a larger conversation on the Chinese stronghold over international diplomatic relations. With the pandas at its core, this form of diplomacy is not only unique but has also had a proven track record for sustaining Chinese hegemony in the larger international ecosystem.
Panda diplomacy is a distinctive form of soft power historically utilized by China, where giant pandas, now an endangered species, are loaned or gifted to other countries. They often symbolize the establishment or continuation of a diplomatic relationship.
In previous years, China gifted the giant pandas to countries with which it aimed to strengthen its ties, but since the 1980s, this tradition has transpired into a leasing program. Pandas are now sent on long-term loans, usually lasting 10 years, under the new program. Recipient countries are required to pay a substantial fee, allegedly directed toward panda conservation efforts within Chinese borders.
The strategic deployment of pandas has served multiple purposes for China and its diplomatic endeavors. First, it has enhanced China’s global image and soft power. Pandas have been universally adored and have proven to be effective ambassadors for Chinese culture.
Second, these loans often coincide with significant diplomatic or trade negotiations, arriving at the panda as a symbolic gesture that emphasizes the importance of bilateral relations. For instance, panda loans often coincide with significant agreements or initiatives, such as China's Belt and Road Initiative or major trade deals.
China retains ownership of all pandas and their offspring, even those born abroad, ensuring control over these diplomatic assets. This also allows China to recall pandas if relations with a country deteriorate, as seen in recent years with the return of pandas from the United States and the United Kingdom amid cooling diplomatic ties.
The Early Days
The earliest recorded instance of China practicing its panda diplomacy dates back to the Tang Dynasty (618–907 AD) when the first pair of pandas was sent to Japan as a gesture of peace and friendship.
In the modern era, panda diplomacy was revived and formalized under Mao Zedong's leadership in the 1950s. This practice was part of China's broader efforts to establish and improve diplomatic relations, particularly during the Cold War.
In 1972, following former US President Nixon's historic visit to China, the country gifted two pandas, Ling-Ling and Hsing-Hsing, who were sent to the National Zoo in Washington DC.
This marked the beginning of a new page in the history of the US-China relations, with pandas symbolizing a thaw in the Cold War and the opening of diplomatic channels between the two superpowers. This gift was emblematic of the newly established relations between Beijing and Washington and sparked what became known as "panda-monium" in the United States.
However, by 1984, China transitioned from gifting pandas to leasing them under the new 10-year leasing program. This shift was framed as part of conservation efforts, with funds ostensibly directed toward preserving the species as they reduced in number, and are today considered endangered.
Despite the high costs, many zoos in Western countries eagerly entered into these agreements, viewing pandas as a major attraction that could boost both ticket sales and international prestige. The arrival of pandas in a country is often accompanied by extensive media coverage and is seen as a symbol of strong bilateral ties.
Bears of Diplomacy
Coinciding with economic agendas, the arrival of pandas in Edinburgh in 2011 followed a major oil deal between China and the UK. Similar patterns can be observed in Canada and France, where panda loans were tied to uranium export agreements.
China’s diplomatic ties with the United States over the past 21 years have been characterized by a mix of cooperation and competition. Economic interdependence has tied the two nations together, but strategic rivalry, ideological differences, and competing global ambitions have fueled tensions.
The US-China relationship has been marked by efforts to manage strategic competition while avoiding direct confrontation as the onset of the 2010s brought with it trade wars, territorial tensions in the South China Sea, and concerns for human rights abuse in Xinjiang.
While both nations have taken steps to stabilize the relationship through high-level dialogues and bilateral meetings, issues such as Taiwan’s status, cyber espionage, and military presence in the Indo-Pacific region continue to pose significant challenges. Three pandas were sent back to China in late November 2023 from the National Zoo in Washington DC, leaving limited hope that the “Panda Agreement” initiated by President Nixon would continue.
The US went on to reinforce its alliances in Asia and Europe, seeking to counterbalance China’s influence through initiatives like the Quadrilateral Security Dialogue (Quad) and the AUKUS security pact. Meanwhile, China pursued its own strategic partnerships, including with Russia and BRICS to bolster its global standing, further straining their diplomatic relations.
The decision to withdraw pandas from Washington DC’s prominent zoo became reflective of China's broader strategy to reduce its engagement with countries it perceives as adversarial or increasingly hostile to its interests. As frequent visitors of the zoo expressed their yearning for the three returned pandas, diplomatic analysts viewed this to be a larger message sent by China, substantiating its diplomatic power internationally.
This selective approach to panda diplomacy has enabled China to leverage the symbolic power of pandas while recalibrating its international relationships in response to shifting global power dynamics.
The debut of panda cubs at the San Diego Zoo has drawn significant public and media attention. It has served as the beginning of a new yet unexpected era of China’s relationship with Washington.
The San Diego Zoo itself has had a long history with pandas, being one of the few American zoos to host them as part of China's diplomatic strategy.
Leaping Towards Conservation
As is also marketed by the San Diego Zoo, the relocation of these giant pandas has been a central part of conservation efforts to restore and sustain the endangered species. Alongside the diplomatic impacts, zoos across the US, together with their Chinese counterparts have been working together for nearly 30 years to ensure the survival of the species, considered to be vital for providing balance to the health of the ecosystem.
However, this notion of panda diplomacy being primarily about conservation has come under excessive scrutiny. Despite the millions invested in these programs, the success of breeding pandas in captivity outside China has been limited, with few cubs born and even fewer surviving long enough to contribute to wild populations.
Critics argue that the focus on pandas as a diplomatic attraction has diverted attention and resources from other conservation efforts, raising questions about the true efficacy of these programs. The arrival of new pandas, especially cubs, tends to generate excitement due to the rarity and cuteness of these animals, shifting focus to ticket collection, rather than the pandas’ wellbeing.
The core of the critique is that while these agreements may create the appearance of supporting conservation, the reality is more complex. The high costs associated with hosting pandas, including fees that can reach up to $1 million per year per panda, suggest that this program is as much about revenue generation and political leverage as it is about saving the species.
Furthermore, the success of panda breeding programs outside of China has been limited, raising questions about the effectiveness of these initiatives as genuine conservation efforts.
Foreign zoos, drawn in by the allure of hosting pandas, may believe they are contributing to conservation. However, the focus remains heavily on China’s control over the species and the political advantages it garners, rather than on genuine global conservation collaboration.
As a result, critics and conservationists argue that the resources spent on panda diplomacy might be better directed toward more effective conservation strategies that benefit a broader range of species.
Crawling Forward
China's panda diplomacy has evolved from a straightforward gesture of goodwill to a complex tool of international strategy, reflecting the country's growing assertiveness on the global stage.
While pandas remain a potent symbol of China's soft power, recent developments indicate that their deployment will be increasingly tied to China's broader geopolitical objectives.
As China continues to navigate its role in a multipolar world, the future of panda diplomacy will likely reflect the broader trends in China's foreign policy, with pandas serving as both ambassadors of goodwill and indicators of China's strategic priorities.
Illustration by Mrittika Mitra
Veda (she/her) is Associate Editor (News) at Political Pandora. She is a student of Humanities and Social Science.
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