Like a roving picaresque novel, the WikiLeaks diplomatic cables have been released since November in chapters, focusing on specific countries and distinct themes. When the anti-secrecy organization turned its focus to Cambodia last week — dumping nearly 800 missives from the U.S. Embassy in Phnom Penh online in 24 hours — the public was at last treated to a candid record of U.S. efforts to grapple with the rising influence of China here — and by extension in Southeast Asia as a whole.
When the Obama Administration took office in 2008, it was keen not to present itself as China's direct strategic adversary. Instead, officials said they were reviving American diplomacy in Asia while maintaining an aversion to "competition and rivalry" which could thwart cooperation with Beijing thirty years after it normalized relations with the U.S. But if it isn't competition and rivalry on display in the cables disclosed last week, it is something very near to it. Though the picture offered by the WikiLeaks archive is incomplete, with the bulk of material generated since 2006, the dispatches show a growing anxiety among U.S. officials about the inroads that Beijing is making in Cambodia.
(Watch a video of WikiLeaks' founder Julian Assange on China.) Beginning in 2006, the embassy began paying increasingly detailed attention to Beijing's relations with Phnom Penh. In April that year, the embassy was irked when Prime Minister Hun Sen praised a $600 million Chinese aid package announced during a visit by Chinese premier Wen Jiabao as coming "without strings." According to an unclassified cable, this was "a slap" at other aid donors, who, unlike China, placed conditions of accountability, reform and transparency on aid. "Despite all the hoopla... much of the assistance is old news and announced more than a year ago," said the cable. (Hun Sen has repeated this view in the years since.)
Four months later, the embassy briefed the State Department's human trafficking office after sending a Chinese-speaking intern and an official of Asian descent from its political/economic section to pose as customers at "sex establishments catering to the Chinese" where they queried managers, staff and Chinese businessmen. "Prices range from USD 20 to USD 150 depending on the type of service and ethnicity of the girl," a cable said. "At one bar, the manager tried to sell her daughter to" embassy officials.
By 2008, celebrations to mark the 50th anniversary of Cambodia's diplomatic relations with the People's Republic really caught the U.S. Embassy's attention. In late December, less than a month before President Barack Obama took office, the embassy cabled Washington with a breathless inventory of Chinese activities here. Describing a crescendo of lavish attention and warmth, the cable said China was set to achieve a "new apogee" in relations with Cambodia and the region: "Cambodia's 'Year of China' looks to become its 'Century of China.'"
(See TIME's top 10 leaks.) That year, King Norodom Sihamoni attended the Beijing Olympics and the Chinese Embassy hosted a royal banquet. China pledged $256 million in aid, mostly in soft loans, "the highest single-donor-country contribution to Cambodia ever." Foreign Minister Yang Jiechi had visited in February, announcing $55 million in aid and $1 billion in pledged commercial investment. New Chinese roads and dams proliferated, with China as the leading planner and financier of Cambodia's ambitious hydropower program that will have potentially devastating environmental consequences.
Though Hun Sen had claimed China's beneficence came with "no strings," it became clear in 2009 that the Chinese could call in extraordinary favors. That year, the Americans watched in dismay as, under heavy pressure from Beijing, Cambodian authorities flagrantly violated international law by wresting 20 ethnic Uihgur asylum seekers out of the U.N.'s hands and bundling them off to China where the faced execution for deadly riots in China's Xinjiang region. Within 48 hours, China had pledged $1.2 billion in assistance to Phnom Penh as an apparent reward. The U.S. Embassy swung into high gear, recording minute-by-minute the movements of Cambodian police, the apparent failures of the local and regional U.N. refugee agency officials and private confrontations with the Cambodian government.
Last year, the U.S. Embassy staged a week of cultural events celebrating 60 years of diplomatic relations of Cambodia. In a cable prior to the festivities, the embassy said it hoped Secretary of State Hillary Clinton would attend to help demonstrate "that our commitment to Cambodia is not eclipsed by the growing influence of China." Clinton did not attend, but she did visit Cambodia in October as part of a regional tour three months after the celebrations. During her visit, the Chinese took the opportunity to announce $600 million in financing for a new rail link to Vietnam.
"The list of Chinese visitors is so long that the Chinese Embassy's political and economic officers complained to [embassy officials] that they never get any rest," said a cable in 2008, before the Uighur deportations. The upshot was that the Cambodians maintained a "steely pragmatism by which Cambodia balances China with others, including the U.S." but uses China as a "blank check."
A spokesman for the Chinese Embassy, which sits prominently on a Phnom Penh thoroughfare named for Mao Zedong, said the events of 2008, at least, were perhaps misread by the U.S. Embassy. "China is a good neighbor of Cambodia. A lot of aid and a lot of help for a good friend is traditional," said Yang Tian Yue, director of political affairs. "To help the friend does not mean not to give the opportunity for the other friend of Cambodia."
Indeed, to all appearances, U.S. relations with Cambodia have not suffered as a result of the country's growing ties with Beijing. The new U.S. Embassy, a sprawling two-hectare campus completed in 2006, has its own prominent spot in the capital directly opposite Wat Phnom, the hilltop pagoda from which Phnom Penh takes its name. The U.S. has expanded the nations' military ties, multiplied the number of high-level visits and sought Washington lawmakers' approval to devote a growing share of the U.S. aid budget to health, human rights and rule-of-law programs in Cambodia.
At her initial meeting with Prime Minister Hun Sen in January 2009, current U.S. Ambassador Carol Rodley noted, according to a classified cable, the warmth of her reception was a sign of the importance Cambodia placed on its relations with Washington. "Gushingly," the cable said, the premier claimed "he spends more of his time with the American ambassador than with any other members of the diplomatic community."
So far, most of the Cambodian establishment appears to have greeted the disclosures with equanimity. However, Hor Namhong, the foreign minister, on July 14 summoned the embassy's new deputy chief of mission to denounce a classified 2002 cable as "full of unacceptable maligned indictment" because it repeated allegations that the minister had in the 1970s committed crimes at a Khmer Rouge labor camp for "intellectuals" and returnees, at least 16 of whom were exterminated by Pol Pot's secret police. (Hor Nahmong has repeatedly sued over the accusations but flouted a summons in 2009 to testify before a special tribunal investigating the Khmer Rouge regime.)
For the world's small cadre of Cambodia scholars and journalists, the WikiLeaks disclosures offered rare dish. As they had in other countries, American diplomats had privately recorded downright catty descriptions of public figures, describing the foreign minister as "sclerotic" and labeling the businessman Kith Meng, a ranking member of the Khmer oligarchy, as a "ruthless gangster," while saying Beijing's relations with King Father Norodom Sihanouk, the father Cambodian independence, were "more or less the 'property of China' and will revert to the PRC upon Sihanouk's death," just like the residence China's leaders had built for the former King in Beijing.
Virtually all Southeast Asian nations are eager to maintain good relations with both China and the U.S., which serves as an alternative to the growing muscle flexed by Beijing. But, according to Sophie Richardson, an expert on Chinese foreign policy and Asia advocacy director for Human Rights Watch, the U.S. response to China's growing clout here has been uneven. "In some key instances, the U.S. appears to be engaging with China in a race to the bottom, not an effort to uphold real and rhetorical commitments to human rights and political reform," she said. "On other occasions, however, the U.S. has on principle vocally defended key human rights issues in Cambodia that neither Phnom Penh nor Beijing cares much about... Cambodia is just one of several countries in which the U.S.'s apparent uncertainty about how to grapple with rising Chinese influence is playing out."
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