The intentions of the Chinese government to formulate and present to the world community programmatic strategic guidelines and target orientations of China's foreign policy are becoming increasingly evident. As an instrument for overcoming interstate rivalry and returning to rational cooperation, China's leadership proposed the concept of global governance, which was announced by Xi Jinping at the expanded session of the SCO Plus summit on September 1, 2025.

The most important state document of the PRC in the sphere of international relations is the foreign policy concept of "A Community of Shared Future," which was outlined in the White Paper of the PRC Ministry of Foreign Affairs in September 2023 [1]. Four functionally oriented "global initiatives" adopted at different times are dedicated to its concretization, presented by Chairman of the PRC Xi Jinping during major international events in 2021-2023. Among them are the "Global Development Initiative" (2021), initiatives on security issues (2022), interaction of civilizations and artificial intelligence governance (2023). All of them, to one degree or another, are intended to concretize China's position on global problems of international relations.

While the "Community of Shared Future" concept describes general principles and target orientations of China's foreign policy, the "global initiatives" by their purpose are rather documents of a "project" nature. They outline China's position on global problems of modernity, including target indicators such as, for example, cooperation in implementing the UN "Agenda" for sustainable development (poverty eradication, food security, overcoming the consequences of COVID-19, development financing, climate change, "green development," industrialization, digital economy, internet access) and alignment with "Belt and Road" programs.

No less important are the documents of the PRC Ministry of Foreign Affairs on global security issues, published in April 2022 and February 2023. They express disagreement with plans for the forced division of the world into liberal democracies and illiberal autocracies, which lead to the recreation of confrontational relations "in the spirit of the Cold War." China's leadership has indicated its lack of interest in forming a new "international bipolarity," which is justified in doctrinal documents of recent American administrations on military strategy and national security. In contrast, Beijing proposed its own model for correcting interstate relations and international institutions based on recognition of interest in maintaining lasting peace and universal security. In development of this theme, the concept of global governance was proposed, announced by Xi Jinping at the expanded session of the SCO Plus summit on September 1, 2025 [2].

The Concept of Global Governance

The term "global governance" means a system of institutions, principles, political and legal norms, as well as accompanying rules of conduct that are applied in processes of multilateral interaction to regulate problems of a transnational and global nature with subsequent adoption of binding decisions. Such regulation is carried out within the framework of conscious interaction of states, primarily through multilateral structures, institutions and mechanisms formed by them, with possible asymmetric participation of non-state actors in international relations.

The first relatively successful experience of global governance is considered to be the creation of the UN and the network of 16 specialized agencies associated with it – from financial organizations (IMF, International Finance Corporation, International Development Association) to agencies of social and humanitarian profile (WHO, ILO, UNESCO).

A new attempt to revive the practice of global governance was undertaken during and after the global financial crisis of 2008-2009 in the form of regular convening of G20 summits and coordination of new rules of financial and economic regulation designed to prevent a crisis in world trade, recurrence of protectionism and destructive economic wars. However, although this experience proved useful, its positive effect was short-lived. Trade wars and activation of military conflicts refuted the liberal thesis that globalization and complex economic-technological interdependence serve as a guarantee of rational behavior by great power governments, which would restrain them from unfair competition and unbridled rivalry.

China's new foreign policy initiative on global governance differs significantly from the four aforementioned initiatives devoted to functional, thematic directions. The initiative on global governance is built on quite sharp and reasoned criticism of current trends in international relations, including their confrontational orientation and declining effectiveness of international institutions. The starting point is criticism of shortcomings in the activities of the United Nations, which celebrates its 80th anniversary this year.

The creation of the UN in 1945 is viewed as an event that laid the prerequisites for multilateral cooperation and made it possible to gain initial experience in the field of global governance. The document of the PRC Ministry of Foreign Affairs notes: "For 80 years, the international system under the auspices of the UN, the world order based on international law, and the basic norms of international relations based on the purposes and principles of the UN Charter – these visions and practices of global governance – make a historic contribution to upholding peace and development worldwide."

At the same time, the UN as a universal international organization and functioning international institution has three obvious defects. These include insufficient representation of the Global South – countries with emerging markets and developing countries in general, declining authority and decreasing effectiveness.

The critical assessment of the current state of the UN concerns quite obvious shortcomings, including non-observance of the purposes and principles outlined in Articles 1 and 2 of the Charter, blocking and non-implementation of Security Council resolutions, as well as the practice of imposing unilateral sanctions, which, in the opinion of China's leadership, "violate international law and world order."

In terms of increasing the UN's effectiveness, wishes were expressed to accelerate implementation of the UN "Agenda" for sustainable development for the period until 2030. The inability of UN member states to ensure consensus on such issues as climate change and the "digital divide," to agree on governance measures in new areas such as artificial intelligence, cyberspace and outer space was noted. The listed trends are viewed as manifestations of factors of anarchy (in the form of weakly predictable chaotic trends) that call into question multilateralism [3] and expose "the widening deficit of global governance." In this regard, China declares readiness to make "firm and unwavering" efforts to "maintain peace <…>, promote global development, uphold international order and build up public goods."

As for the goals of the declared initiative on global governance, the document of the PRC Ministry of Foreign Affairs formulates the task: to answer the relevant question concerning the desired prospective model of global governance, including determination of ways to improve it taking into account current practice of multilateral interaction. It is noted that China's initiative "is aimed at forming a more just and rational system of global governance" in the context of jointly creating a community of shared future for humanity.

It should be noted that unlike the interpretations of the concept of "world order" common in the USA and European countries, the PRC Ministry of Foreign Affairs considers it as "the result of a UN-centric international system" and functioning mechanisms of international law. In this regard, a reservation was made that the "reform and improvement of global governance" proposed by China is intended "not to destroy the existing world order," and even more so – "not to create something new." On the contrary, an intention is expressed to "make the functioning world order and international institutions more effective in accordance with changing circumstances and capable of countering global challenges for the benefit of the interests of all countries, especially developing countries."

Declaring the goals and principles of the country's foreign policy, the PRC Ministry of Foreign Affairs confirms commitment to the cause of peace and development of humanity, which ensures China's place "on the right side of history." At the same time, it should be noted that the "global initiatives" published by the Ministry of Foreign Affairs, while declaring commitment to protecting the "UN-centric international system" and the world order based on international law, do not claim detailed specification of means and methods for their achievement. A more detailed description of foreign policy approaches is contained in public statements by Chairman Xi Jinping, Foreign Minister Wang Yi, comments by official representatives of the PRC Ministry of Foreign Affairs and is transferred to the level of diplomatic dialogue with governments of individual states and the apparatus of integration associations.

Content of China's Initiative on Global Governance

In substantive terms, the document of the PRC Ministry of Foreign Affairs is devoted to outlining general principles that will ensure the effectiveness of the global governance system and its ability to solve practical problems. These include observance of sovereign equality of states, commitment to international law, observance of the principle of multilateralism, the need for a people-centered approach. As conditions determining the effectiveness of global governance as a multilateral process aimed at solving global problems of human civilization, the PRC Ministry of Foreign Affairs emphasizes the need for strict observance of the purposes and principles of the UN Charter, ensuring equal and uniform application of norms of international law, prevention of double standards and practices allowing some states to impose their will on others.

The text of the document specifies the content of the principle of multilateralism as the main mechanism of global governance and the "fundamental concept" of the functioning international system and world order. The principle of multilateralism implies a combination of the practice of joint consultations, joint construction and joint use of achieved results. In other words, all states bear responsibility for solving world problems, and positive results of joint decisions "should be publicly accessible to all." In the opinion of the PRC government, the UN is the key platform for implementing multilateralism and promoting global governance. It is believed that the potential of this universal organization, which allows avoiding discriminatory and exclusive approaches, is far from exhausted.

The meaning of the "people-centered approach" lies in the need to direct the global governance system toward increasing people's well-being, ensuring joint development in the interests of improving the welfare of peoples of world countries, countering common challenges facing humanity.

As for possible ways to increase the effectiveness of global governance, the text of the document published by the PRC Ministry of Foreign Affairs emphasizes the need to pay attention not only to current pressing issues but also to long-term challenges. It contains a wish for developed countries to "take on greater responsibility," provide more resources and public goods for solving global tasks, while developing countries, among which China counts itself, should consolidate efforts, build their own capacity and "make a feasible contribution."

The listed theses echo the basic provisions of the UN Charter. The PRC government calls sovereign equality "the most important norm" and "primary principle" (both for the UN and for all other international institutions and organizations), without observance of which it is impossible to ensure an effective model of regulating interstate relations. Within this approach, emphasis is placed on respect for the sovereignty and dignity of any country – "large or small, strong or weak, rich or poor," including guarantees of non-interference in internal affairs, the right to independently choose the social system and path of development, to participate on equal terms in the process of global governance, make decisions and benefit from it.

Expressing support for "democratization of international relations," China's leadership consistently claims the status of an exponent of the interests and needs of the world majority, including increasing the representation and voting rights of developing countries.

Of course, China's proposals, put forward in such general form, raise a number of quite natural questions, the main one being the choice of means and methods for their implementation.

Statements and Comments by Senior Officials of the PRC

Promoting the initiative on problems of global governance, representatives of China's leadership made a number of clarifying statements.

In his speech at the 23rd Lanting Forum on October 27, 2025, Foreign Minister Wang Yi specified forms and methods of multilateral dialogue:

  • readiness to work with all parties to ensure equal consultations, "treat different points of view with open thinking," "accept useful proposals with an inclusive attitude and maximize consolidation of consensus of all parties";
  • "reform and improve the existing international system in accordance with the spirit of the times, rather than create a new structure";
  • "adhere to gradualism, steadily and consistently promote transformation of the global governance system so that it benefits the whole world" [4].

According to Wang Yi, the result of cooperation within the framework of the global governance initiative should be "building a just future as a world of universal and equal security." Accordingly, the means of achieving this goal are uniting forces of cohesion and observing the principle of multilateralism.

No less significant was Xi Jinping's speech at the session of the informal meeting of leaders of Asia-Pacific Economic Cooperation countries (October 31, 2025). It can hardly seem surprising that in form and meaning, Xi Jinping's speech looked like a mirror opposite of Donald Trump's statements, negotiations with whom took place the day before. While Trump arbitrarily annuls agreements concluded during his previous administration (2017-2021) and intimidates trade partners with draconian tariffs, Chairman Xi confirmed China's readiness to promote open development and economic growth of the Asia-Pacific community, transforming the APR into the world's most economically dynamic region. Speaking on behalf of "legitimate interests of developing countries," China supports reforming the World Trade Organization and such basic principles as most favored nation treatment and non-discrimination in trade [5].

In order to achieve mutual benefit and "promote publicly accessible and inclusive economic globalization," Xi Jinping voiced 5 proposals, including:

  • The need to support the multilateral trading system (implement genuine multilateralism, increase the authority and effectiveness of the multilateral trading system with the WTO at its core).
  • Creating an open regional economic environment, which implies liberalization and facilitation of trade and investment, deepening financial interaction, promoting regional economic integration. China is interested in creating a common free trade area in the APR based on two existing associations – the "Regional Comprehensive Economic Partnership" [6] and the "Comprehensive and Progressive Agreement for Trans-Pacific Partnership" [7].
  • Ensuring a stable and uninterrupted production and sales chain. Within the framework of the 10th anniversary of implementation of the "APEC Action Plan to Strengthen Interconnectedness," it is necessary to continue work "on infrastructure, policy and humanitarian alignment for the benefit of creating a solid foundation for open development of the APR."
  • Stimulating digitalization and green transformation of trade (including activating the role of digital technologies in cross-border trade, eliminating trade barriers related to environmental protection, etc.).
  • Ensuring publicly accessible and inclusive development (this implies efforts aimed at "regulating unbalanced development" and promoting economic globalization in a more mutually beneficial and sustainable direction for the benefit of peoples of the APR region), including partnership within the "Belt and Road" project. China will provide support to developing countries in implementing modernization. For the least developed states, China provides a zero tariff in trade for the entire commodity nomenclature.

In this regard, Ukrainian diplomat S.V. Korsunsky (Ambassador of Ukraine to Japan in 2020-2024) notes that China is clearly winning the war of narratives. Unlike Xi Jinping, who took the APEC summit more than seriously, Trump left South Korea immediately after the meeting with Xi, seeing no need for a public speech at the APEC forum.

Of course, against the backdrop of harsh trade wars and escalating international tensions, raising the question of the effectiveness of global governance may seem untimely. After all, restoring mutually beneficial interstate cooperation requires at minimum broad recognition of principles of peaceful coexistence and readiness to take into account the interests of parties. However, the concept of international relations promoted by China seems to ignore current obstacles, offering more attractive and positive images of the future.

Considering the Chinese concept of global governance from this point of view, several important details should be noted:

  • Without entering into disputes about whether it is possible to stop the destruction of the liberal world order, Chinese diplomacy justifies a scenario of multilateral relations in a world without hegemony, built on conditions of rejecting confrontational politics.
  • Acting as an exponent of the interests of Global South countries, China expects to form a new "moral majority" that is created on a non-ideological basis. This approach explains why Chinese leadership shows no interest in creating bloc structures, appeals to the thesis of "democratization of international relations" and relies on the unrealized potential of the UN. After all, the UN is the only universal international organization, and developing countries constitute the majority in it, on whose support Beijing counts. Creating an international structure with selective membership as a foreign policy instrument could only intensify rivalry with US-led alliances and informal associations like the G7, thereby weakening China's chances to increase its weight and influence in solving global problems and forming universal norms of international interaction.
  • China consistently advocates for continuing globalization and preserving institutions designed to regulate international trade and investment activity. As Chinese observers note, one of the reasons that prompted the Chinese government to raise the status of Victory Day in World War II was to assert China's role as a defender of the post-war order, which looks especially prominent against the backdrop of widespread disregard for norms of international law and declining prestige of international organizations.
  • Chinese leadership rejects accusations of revisionism, aggressive plans and tries to gently disavow signals from the US administration about transferring economic and ideological contradictions to the plane of bilateral bipolar confrontation. This approach is based on striving to avoid trade wars and strengthen economic interdependence of Asia-Pacific countries, as evidenced by Xi Jinping's initiative to find a form of merger of two free trade zones, the opposition of which Chinese diplomacy considers at minimum ideologically motivated and unreasonable.

The current extremely complex relations between China and the USA and continuing uncertainty in relations with the EU largely explain why the initiatives of the PRC Ministry of Foreign Affairs on main issues of the international relations agenda avoid more detailed recommendations and outlining of an action plan. On one hand, Chinese diplomacy shows caution and does not want to take responsibility for problems and crises created by others. On the other hand, the PRC government only relatively recently declared readiness to participate in world affairs as a great power. Therefore, expression of China's position on specific issues is consciously transferred to the level of regional international forums and diplomatic consultations.

Notes:

  1. A Global Community of Shared Future: China's Proposals and Actions. The State Council Information Office of the People's Republic of China. September 2023. URL: https://www.fmprc.gov.cn/eng/zxxx_662805/202309/t20230926_11150122.html See: Tolstov S. The "Community of Shared Future" Concept as the Worldview Foundation of China's Foreign Policy. Khvylia. 31.05.2024. URL: https://hvylya.net/analytics/293616-koncepciya-soobshchestva-edinoy-sudby-kak-mirovozzrencheskaya-osnova-vneshney-politiki-knr
  2. Concept Paper on the Global Governance Initiative. Ministry of Foreign Affairs of the PRC. 02.09.2025. URL: https://www.fmprc.gov.cn/rus/zxxx/202509/t20250902_11699924.html
  3. In UN terminology, "multilateralism" is considered a recognized concept. It provides for collective actions coordinated by at least three participants. Multilateralism implies that "actors share an understanding that it is in their interest to work together to solve problems that cannot be solved alone." Multilateralism is designed to help countries confront complex global challenges based on a universal approach. Multilateralism is viewed as a tool of public administration and a way of thinking, a mode of action. See: The Multilateral System (global agenda issues). [UN Website]. URL: https://www.un.org/ru/global-issues/multilateral-system Another definition of multilateralism means collective problem-solving in international relations, joint actions of several countries to solve common problems that cannot be solved alone.
  4. Wang Yi: To implement the Global Governance Initiative, it is necessary to adhere to "three principles." Ministry of Foreign Affairs of the PRC. 2025-10-27. https://www.fmprc.gov.cn/rus/wjdt/wshd/202510/t20251030_11743735.html
  5. Xi Jinping. Joint formation of a publicly accessible, inclusive and open economy in the APR. Speech at the first session of the 32nd informal meeting of leaders of Asia-Pacific Economic Cooperation countries. Ministry of Foreign Affairs of the PRC. 2025-10-31. https://www.fmprc.gov.cn/rus/wjdt/zyjh/202510/t20251031_11744811.html
  6. Regional Comprehensive Economic Partnership (RCEP) – the world's largest free trade zone with the participation of 15 East Asian and Oceanian states. Includes 10 ASEAN states and 5 partner countries (Australia, China, Japan, New Zealand, South Korea). The agreement on creating RCEP was signed in 2020. Entered into force on January 1, 2022. It is a legal instrument of regional economic integration in the form of creating a trade bloc.
  7. The "Comprehensive and Progressive Agreement for Trans-Pacific Partnership" (CPTPP) with the participation of 11 APR countries entered into force in 2018. It was agreed after the USA withdrew from the original Trans-Pacific Partnership (TPP) project. Participating countries in the agreement are Australia, Brunei, Canada, Chile, Japan, Malaysia, Mexico, New Zealand, Peru, Singapore and Vietnam.