China’s Multilayered Multilateralism: A Case Study of China and Central and Eastern Europe Cooperation Framework

In recent years, Beijing has been actively setting up new regional multilateral mechanisms with China at their centre. This article examines “16 + 1”, the multilateral framework for China’s cooperation with Central and Eastern Europe, in the context of such a strategy of building China-led multilateral relations and institutions. We argue that the existing scholarship has not fully captured the multilayered nature of interactions within this, and possibly other, multilateral frameworks. We find that China seeks to establish a multilayered cooperation framework which aims to increase the gains for both China and participating countries and to aid China to more effectively manage the diversity within the region. Such approach encompasses three distinct levels of interactions—regional, sub-regional and bilateral. In the case of “16 + 1”, these include an overarching regional “16 + 1” coordination platform; a tailored approach to sub-regional groups of countries identified according to their perceived similarities, and shared “strengths” and interests; and deepening of relations with individual countries, especially those regarded as pivot countries. As such, China’s approach to Central and Eastern Europe suggests that China-led multilateralism is based on a flexible and multidimensional approach which blends diplomacy through multilateral and bilateral means. However, various internal and external factors—discussed in the latter part of the paper—present China with significant challenges for capitalizing on such an approach and cast shadows over the utility of multilayered multilateralism for both China and participating countries.