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As ther are elements of ‘cooperation’ to be rather one-way and asymmetrical, while others are more based on partnerships between China and Africa, the same, but in different way from EU to Africa (EU is in debt with Africa)

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China–Africa human resource development: Partnership or one-way?

New from PambazukaNews.org

Looking at trends within China’s work with Africa around human research development, especially in the areas of education and training, Kenneth King finds certain elements of ‘cooperation’ to be rather one-way and asymmetrical, while others are more based on partnerships.

First, despite China’s discourse about the parity and importance of symmetry in China–Africa cooperation, several of these education and HRD (human resource development) elements appear to be much more one-way than two-way cooperation.

There are, for example, in Kenya and Ethiopia very few Chinese students on scholarships from their host countries compared to the numbers of Kenyans and Ethiopians going on China Scholarship Council awards to China. The presence of education counsellors from China in Egypt and South Africa is certainly testimony to the fact that there have been significant numbers of Chinese studying in these two countries, and no less than 20 Chinese appear currently to be on host-country awards in Egypt.[1] However, the very large-scale, short-term training programme of 20,000 African professionals going to China is basically a one-way process. There are substantial numbers of Chinese going to Africa in medical teams, or as agricultural experts, or as trainers in agricultural and vocational colleges, but they are going as trainers not trainees.

Second, on the other hand, twinning and partnership are key characteristics of many other parts of China’s HRD support to Africa.

Although we have talked of the different education institutions constructed by China in Africa, arguably the focus of China’s HRD cooperation remains people-based. A large number of the FOCAC education pledges are based on people, whether students, volunteers or experts. This is illustrated by the commitment to train 20,000 people from Africa in the period 2010–12 and provide 5,500 long-term scholarships over the same period. Equally, the technical assistance theme is exemplified in the young volunteers-serving-Africa scheme that started in 2007, or in the many volunteers and teachers coming to work in the Confucius Institutes. Under other line ministries such as health and agriculture there has been a long tradition of Chinese medical teams going to Africa, as well as senior agricultural experts. With these two areas, infrastructure has also been an important component, with the 30 hospitals and 20 agricultural demonstration centres committed to Africa. Nevertheless, the human resources focus remains very strong, with no less than 50 agricultural technology teams going to Africa in the current triennium, and medical teams also continuing to be sent. Within the area of science and technology also, there are FOCAC pledges just being implemented to support 100 African post-docs to do research in China, as well to support 100 joint research and demonstration projects in Africa.

It should be underlined that there continues to run through the FOCAC process the strong emphasis on ‘cultural and people-to-people exchanges’, youth and sporting exchanges, in addition to the newer emphasis on implementing a China–Africa joint research and exchange plan, a climate partnership and a science and technology partnership.

This focus on China being exposed to Africa and vice versa is central to the logic of China’s cooperation. So when the FOCAC 2009 Action Plan (para 6.4.1) mentions: ‘The two sides noted that people-to-people exchanges are conducive to mutual understanding and important to the deepening of China-Africa friendship. The two sides remain committed to promoting people-to-people exchanges.’ It is making a crucially important point about the nature of the cooperation process (FOCAC, 2009). The only other country that still pays as much attention to exchange of expertise and to capacity building through short-term training in international cooperation is Japan.[4]

Sixth, China’s human resource cooperation with Africa is more at the post-basic level than at the level of basic education.

Seventh, the particular shape and character of China’s support to education, and to human resources more generally, help to explain why it does not often take part in donor coordination meetings at the country level in Africa.

It can scarcely be argued, when China is offering just one to three rural schools in many African countries over a six-year period – and the occasional much larger further or higher education project in just a few African countries – that it should take part in the regular education donor meetings at the country level. China is not involved in education sector support like DFID, so it is not an obvious candidate to participate in donor meetings, for example, about Ghana, Kenya or Uganda’s education sector support programme. Its human resources support does touch several line ministries, but it makes more sense for it to relate to a more general ministry such as Ethiopia’s Ministry of Capacity Building or Kenya’s Human Resources Development Department (HRDD).[5]

A more substantial point, however, may be that the various items that fall under China’s FOCAC statements on human resource development or education do not yet constitute a coherent aid package. There is no obvious connection between the offer of scholarships on the one hand, and very short-term training on the other. Indeed, they are organised through different ministries in China, and two different buildings of the Chinese embassy in many African countries, one linked to the Ministry of Foreign Affairs, and one to the Ministry of Commerce.

CONCLUSION

These are just a few aspects of China’s current education and training cooperation with Africa. There are, however, many interesting questions to be raised about how China’s ‘South–South cooperation’ differs from that of traditional Western donors. Pambazuka readers may wish to engage with this debate by looking at the latest issue of NORRAG News which is entirely dedicated to an analysis of the ‘Brave new world of “emerging”, “Non-DAC” donors and their differences from “traditional” donors’