U.S.-China Economic and Security Review Commission 

 Staff Research Backgrounder

The Chinese People’s Liberation Army 

Delegation Visit to the United States, May 2011: 

A Summary of Key Actors and Issues

Amy Chang, USCC Research Fellow 

for Military & National Security Affairs

June 30, 2011
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Disclaimer

This report is the product of research performed by staff of the U.S.-China Economic and 

Security Review Commission, and was prepared at the request of the Commission to support 

its deliberations. Posting of the report to the Commission's website is intended to promote 

greater public understanding of the issues addressed by the Commission in its ongoing 

assessment of U.S.-China economic relations and their implications for U.S. security, as 

mandated by Public Law 106-398 and Public Law 108-7. However, it does not necessarily 

imply an endorsement by the Commission, any individual Commissioner, or the Commission’s 

other professional staff, of the views or conclusions expressed in this staff research report.
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Executive Summary

General Chen Bingde, the Chief of the General Staff Department of People‟s Liberation Army (PLA), and 

an accompanying delegation of PLA officers visited the United States from May 15 – 22, 2011. China 

had previously cut high-level bilateral military relations with the United States after a proposed $6.4 

billion arms sales package to Taiwan in early 2010. The purpose of General Chen‟s visit was to restore 

and implement a healthier U.S.-China military-to-military (mil-to-mil) relationship, as agreed upon by 

Presidents Barack Obama and Hu Jintao in February 2011. 

Historically, the United States has sought to increase transparency and direct communication between the 

U.S. and Chinese militaries. However, such requests were not prominent in public discussions during 

Chen‟s visit.1 During this round of mil-to-mil talks, China sought political and legislative concessions on 

its “core interests,” including curtailing Taiwan arms sales, reducing U.S. reconnaissance and surveillance 

operations off of China‟s coast, and ending legislative barriers to high-tech exports to China.2

At the moment, the result of General Chen‟s trip appears to be a muted revitalization of the mil-to-mil 

relationship between China and the United States. However, divergent agendas and perceptions of the 

military relationship will inevitably present problems in the future. As the United States considers future

arms sales to Taiwan, and as China continues to modernize its military, it is uncertain how long this 

amicable mil-to-mil relationship will last.

Destinations

General Chen‟s delegation visited:

 The U.S. Army's base at Fort Stewart, Georgia

 U.S. Naval Station Norfolk, Virginia

 Nellis Air Force Base, Nevada

 U.S. Army National Training Center, Fort Irwin, California

 National Defense University, Washington, D.C.

Officials

The high-level officials involved in General Chen‟s delegation visit included:

United States

 Representative Charles Boustany (R-LA), Co-Chair of the Congressional U.S.-China Working Group

 Hillary Clinton, Secretary of State

 Tom Donilon, Assistant to the President for National Security Affairs

 Senator Dianne Feinstein (D-CA), Chair of the Senate Intelligence Committee

 Secretary Robert Gates, Secretary of Defense

 Senator Joseph Lieberman (I-CT), Chair of the Senate Homeland Security and Governmental Affairs 

Committee

 Senator Mark Kirk (R-IL)

 Representative Rick Larsen (D-WA), Co-Chair of the Congressional U.S.-China Working Group

 Admiral Mike Mullen, Chairman of the U.S. Joint Chiefs of Staff

 

1Dean Cheng, “U.S. Must Focus Military Talks with China,” Heritage Foundation, May 17, 2011, 

http://www.heritage.org/Research/Reports/2011/05/US-Must-Focus-Military-Talks-with-China.

2 Mu Xuequan, “China eyes new-type military relations with U.S: Defense Ministry,” Xinhua, May 12, 2011, 

http://www.gov.cn/misc/2011-05/12/content_1862447.htm.
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People’s Republic of China

 General Chen Bingde, Chief of the General Staff Department of the Chinese PLA3

 Rear Admiral Guan Youfei, Deputy Director of Foreign Affairs Office, PRC Defense Ministry

 Major General Qi Jianguo, Assistant to the Chief of the General Staff 

 Major General Yang Hui, Director of the General Staff Department Second Department (Military 

Intelligence)

 General Zhang Haiyang, Political Commissar of the Second Artillery (PLA Missile Forces)

 Major General Zhang Jianping, Jinan Military Region Air Force Commander

 Lieutenant General Zheng Qin, Deputy Commander of Guangzhou Military Region

 Vice Admiral Su Zhiqian, Deputy Commander of Nanjing Military Region and Commander of the 

PLA Navy (PLAN) East Sea Fleet

General Chen Bingde and other accompanying PLA delegation members 

at the U.S. Army National Training Center in Ft. Irwin, California. 

Source: “Chinese PLA Delegation Visits NTC,” May 23, 2011, 

http://www.army.mil/article/56981/Chinese_PLA_delegation_visits_NTC.

Relevant Legislation

Legislation that was relevant to the PLA delegation visit included:

 The Taiwan Relations Act (passed in 1979), which defines U.S. commitments to support 

Taiwan‟s self-defense needs.

 The FY2000 National Defense Authorization Act (NDAA), which prohibits the Secretary of 

Defense from authorizing any mil-to-mil contact with the PLA if that contact would “create a 

national security risk due to an inappropriate exposure” of the PLA to 12 operational areas (with 

exceptions granted to search and rescue operations and humanitarian operations or exercises).

One of the cited justifications for the legislation included an alleged incident during a U.S.-China 

 

3 Wang Hanlu, Senior PLA delegation of China to visit US, People’s Daily Online, May 12, 2011, 

http://english.peopledaily.com.cn/90001/90776/7378250.html.
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mil-to-mil exchange in the late 1990s, when a visiting Chinese military officer learned about a 

key vulnerability of U.S. aircraft carriers in a conversation with U.S. Navy personnel, and the 

PLA subsequently acquired weapons targeted against the vulnerability.

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Topics of Discussion

The tone of meetings between General Chen‟s delegation and U.S. counterparts ranged from consensus to 

disagreement on issues relevant to U.S. and Chinese military development, the Taiwan issue, and U.S.-

China military-to-military cooperation. Common themes discussed during meetings included “enhancing 

mutual understanding, boosting mutual trust, and promoting cooperation, and working to push for fresh 

progress in the development of relations between the two militaries.”5 General Chen Bingde‟s remarks 

were consistent with previous Chinese public statements on the nature of the U.S.-China military 

relationship, and on China‟s professed peaceful military intentions.

Establishing a positive military-to-military relationship

During the PLA delegation visit, General Chen‟s public statements and Chinese state news highlighted 

several conditions for a positive military-to-military relationship. These included:

 Respect for each other‟s “core interests and major concerns, instead of imposing one‟s own will 

on the other.”

o China‟s stated core interests include: stability in the form of government; sovereignty, 

security, territorial integrity, and national unity; and a fundamental guarantee to China‟s 

sustainable socio-economic development.

 Bolstering “strategic mutual trust through enhanced dialogues and communication, instead of 

being prone to suspicion.”

6

 The parties must be “motivated by greater common interests instead of pursuing a unilateral 

competitive edge.”7

China’s military modernization

General Chen said that the U.S. overstates the threat China poses to countries in the Asia-Pacific region, 

and that such misperceptions can negatively impact mil-to-mil relations.8 Additionally, General Chen 

emphasized that the relative development of China‟s military is still far behind that of developed 

countries. Despite General Chen‟s attempt to allay concerns about China‟s military rise, a number of U.S. 

Senators and Representatives have voiced their concern over the rise of China‟s military and its strategic 

objectives.9

 

4 Rep. Thomas Delay (R-TX), speech in the U.S. House of Representatives, June 9, 1999. Congressional RecordHouse (106th Cong., 1st sess.), June 9, 1999, p. 12250. 

http://books.google.com/books?id=SmwXC0nU2pYC&pg=PA12250&lpg=PA12250.

5

“Top Chinese, U.S. military officers hold talks,” Xinhua, May 18, 2011, 

http://news.xinhuanet.com/english2010/china/2011-05/18/c_13881321.htm.

6

“General: China Never Intends to Challenge U.S.,” Defense News, May 18, 2011, 

http://www.defensenews.com/story.php?i=6548219&c=ASI&s=POL.

7 General Chen Bingde‟s speech at National Defense University, May 18, 2011. Notes taken by USCC staff.

8 Nathan Hodge, “Beijing's Top General Says U.S. Overstates China Threat,” Wall Street Journal, May 19, 2011, 

http://online.wsj.com/article/SB10001424052748704281504576331702045148840.html.

9

“U.S. Senate Unanimously “Deplores” China‟s Use of Force in South China Sea,” U.S. Senator Jim Webb press 

release, June 27, 2011, http://webb.senate.gov/newsroom/pressreleases/06-27-2011.cfm?renderforprint=1; and 

“Senator: Broad Support For F-16 Sales to Taiwan,” Defense News, May 26, 2011, 

http://www.defensenews.com/story.php?i=6634106&c=AME&s=AIR; and “Ros-Lehtinen Criticizes Defense 

Officials for Providing Chinese Military Access to Sensitive U.S. Facilities,” U.S. House of Representatives 

Committee on Foreign Affairs, May 18, 2011, http://foreignaffairs.house.gov/press_display.asp?id=1826.
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Taiwan

General Chen emphasized the strategic importance of Taiwan, and that U.S. actions deterred bilateral 

military progress by intervening in China‟s internal affairs. However, there was confusion over U.S. 

positioning on the Taiwan issue. First, Admiral Mullen went on the record as supporting the “peaceful 

reunification” of China (before a later addendum clarifying the United States‟ position on the issue).10

Second, General Chen posited that Secretary of State Clinton “reiterated the U.S. policy; that is, there is 

only one China in the world, and Taiwan is part of China.”11 Lastly, General Chen said that U.S. 

lawmakers were considering a review of the Taiwan Relations Act, though members of Congress either 

denied the assertion or declined to comment on the issue.12 The ambiguous U.S. stance on the Taiwan 

issue, and the lack of a strong U.S. response to Chen‟s claims, could send signals to both China and 

Taiwan that could be misconstrued.

Bilateral Agreements

Admiral Mullen and General Chen presented a joint statement that outlined bilateral agreements for the 

U.S.-China military relationship.13 Guan Youfei, Deputy Director of the Foreign Affairs Office of the 

Ministry of National Defense, highlighted three major positive points of consensus:

1. The two sides have reached consensus to promote new development of military ties and engage 

in mutually beneficial efforts;

2. The two sides have conducted in-depth exchanges of views on international and regional issues, 

including the Korean Peninsula nuclear issue, piracy, terrorism, humanitarian assistance, and 

disaster alleviation;

3. The two sides specified projects for the next step in pragmatic bilateral cooperation, including 

direct defense ministry telephone lines, cooperating on maritime security, and executing joint 

humanitarian assistance drills.14

Even further, Guan highlighted six specific achievements of the delegation‟s visit to the United States:

1. The two sides agreed that healthy, stable and reliable military ties are an important part of 

bilateral relations;

2. The two sides agreed that continuing high-level military contacts and dialogue will create a 

positive atmosphere for joint efforts;

3. The two sides reaffirmed their desire to strengthen joint action towards maintaining maritime 

security and reducing potential hazards;

4. The two sides agreed to conduct exchanges on joint humanitarian and disaster relief efforts in 

2012;

5. The two sides agreed to conduct exchanges in military medicine;

 

10 “Joint Press Conference with Adm. Mullen and Gen. Chen from the Pentagon,” Office of the Assistant Secretary 

of Defense (Public Affairs), May 18, 2011, http://www.defense.gov/transcripts/transcript.aspx?transcriptid=4824.

11 “Joint Press Conference with Adm. Mullen and Gen. Chen from the Pentagon,” Office of the Assistant Secretary 

of Defense (Public Affairs), May 18, 2011, http://www.defense.gov/transcripts/transcript.aspx?transcriptid=4824.

12 Phil Stewart, “Analysis: No review of TRA coming anytime soon,” Taipei Times, May 25, 2011, 

http://www.taipeitimes.com/News/taiwan/archives/2011/05/25/2003504105.

13 “Joint Press Conference with Adm. Mullen and Gen. Chen from the Pentagon,” Office of the Assistant Secretary 

of Defense (Public Affairs), May 18, 2011, http://www.defense.gov/transcripts/transcript.aspx?transcriptid=4824.

14 “Roundup: China-U.S. military ties to be further advanced with implementation of heads-of-state consensus,” 

China Daily, May 20, 2011, http://www.chinadaily.com.cn/xinhua/2011-05-20/content_2676085.html; and Yang 

Liming and Ju Hui, “Three Points of Consensus Reached, Six Specific Achievements in China-US Military 

Exchanges,” Zhongguo Qingnian Bao Online, May 12, 2011, OSC ID: CPP20110520787016.
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6. The two sides agreed that sports and recreational exchanges between the two countries‟ armed 

forces will help enhance mutual understanding and trust. 15

Other bilateral agreements as a result of General Chen‟s visit included:

 China allowed the U.S. Navy aircraft carrier USS Carl Vinson to conduct a port visit in Hong Kong 

from May 22–25, and the U.S. Navy allowed Chinese officials to visit the ship.16

 Admiral Patrick Walsh, Commander of the U.S. Pacific Fleet, stated that the U.S. military would 

consider sending officers and cadets to China on study exchange programs if relations between the 

two countries improve. The effort would be a part of efforts to improve relations with the Chinese 

military, and “the officer exchange program would provide a better understanding of Chinese culture, 

goals, and thoughts.”17

 China invited the U.S. to engage in joint counterpiracy exercises in the Gulf of Aden in 2012.18

Points of Controversy: China

General Chen and other Chinese government representatives highlighted three major points of 

controversy that continue to impede positive mil-to-mil relations: 

1. Arms sales to Taiwan

The Chinese government has expressed strong opposition to U.S. arms sales to Taiwan, and in 

2010 cut off all formal military relations with the United States in response to arms sales

propositions. According to China, both the sales of arms and the Taiwan Relations Act interfere 

with China‟s domestic affairs. General Chen stated that Taiwan arms sales would damage U.S.-

China relations, saying that “how bad the impact will be...depend[s] on the nature of the weapons 

sold.”19

2. Close-in reconnaissance activities along Chinese coasts by U.S. military aircraft and vessels.

General Chen was quoted as saying that reconnaissance activities by the U.S. military are “a 

deterrent” to improved bilateral military relations. 

3. Restrictions imposed on mil-to-mil exchanges by domestic U.S. legislation (e.g., the FY2000 

NDAA).

Major General Qian Lihua, director of the Foreign Affairs Office within the National Defense 

Ministry, argued that domestic U.S. legislation (e.g., FY2000 NDAA, the Delay Amendment, 

FY1990-91 Foreign Relations Authorization Act) restricts bilateral military exchanges and hightech exports to China, and called on the United States to make necessary adjustments or to 

abolish these laws.20

 

15 Yang Liming and Ju Hui, “Three Points of Consensus Reached, Six Specific Achievements in China-US Military 

Exchanges,” Zhongguo Qingnian Bao Online, May 12, 2011, OSC ID: CPP20110520787016.

16 Su Yiping, “China and the United States Start „Treating Each Other With Sincerity‟ in Military Exchanges,” 

Zhongguo Tongxun She, May 20, 2011, OSC ID: CPP20110520046003; and “US Carrier Visits Hong Kong After 

Bin Laden Burial,” Voice of America News Online, May 23, 2011, http://blogs.voanews.com/breakingnews/2011/05/23/us-carrier-visits-hong-kong-after-bin-laden-burial/.

17 “Admiral says US would consider sending military personnel to study in China if ties improve,” May 19, 2011, 

http://www.washingtonpost.com/world/admiral-says-us-would-consider-military-personnel-studying-in-china-ifrelations-improve/2011/05/19/AFhaB76G_story.html.

18 “Optimism rises over military ties,” China Daily, May 20, 2011, http://www.chinadaily.com.cn/usa/epaper/2011-

05/20/content_12547439.htm.

19 “Arms sales to Taiwan 'damage US-China ties,‟” Straits Times, May 19, 2011, 

http://www.straitstimes.com/BreakingNews/Asia/Story/STIStory_670177.html.

20 Mu Xuequan, “China eyes new-type military relations with U.S: Defense Ministry,” Xinhua, May 12, 2011, 

http://www.gov.cn/misc/2011-05/12/content_1862447.htm.
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Points of Controversy: United States

1. Arms sales to Taiwan

After General Chen‟s delegation departed, U.S. Senators Robert Menendez (D-NJ) and James 

Inhofe (R-OK) authored a letter to President Obama expressing Congressional support for arms 

sales to Taiwan.21 The petition urged President Obama to expedite the sale of F-16C/D aircraft, 

addressed military imbalances in the Taiwan Strait, and affirmed a U.S. obligation to maintain 

peace and stability in the Strait. Forty-five of 100 U.S. Senators signed the letter.

2. PLA visits to U.S. military bases

Representative Ileana Ros-Lehtinen (R-FL), Chair of the House Foreign Relations Committee, 

expressed concern that high-ranking Chinese military officials were allowed to access and survey 

U.S. military bases. She suggested that Congress review existing prohibitions against granting 

Chinese officials access to sensitive information. She said, “The Chinese military openly 

regards the United States as an enemy. We should not undermine our own security by thinking 

we can make friends with self-proclaimed adversaries with hospitality and open arms.” 22

Congressman Dana Rohrabacher, Chair of the House Foreign Affairs Subcommittee, also 

criticized the visit, arguing that visits by Chinese PLA officials violate limits set by the FY2000 

NDAA and create vulnerabilities in U.S. military operations and strategy.

23

Conclusion

General Chen‟s visit brought to light divergent views held by the United States and China regarding their 

bilateral military relationship. The United States places a heavy emphasis on a healthy mil-to-mil 

relationship with China and increasing military transparency, while China has historically dismissed 

military relations as a non-crucial aspect of the U.S.-China bilateral relationship.24 This is evident in 

China‟s historic lack of reciprocity with the United States in mil-to-mil exchanges, due to a number of 

factors (e.g., mutual suspicion, transparency issues, or funding).25

China has made it clear that bilateral military ties can progress and develop smoothly as long as the U.S. 

respects China‟s “core interests.” However, given that China‟s core interests directly contradict several 

U.S. laws and legal obligations, as well as many critical U.S. national interests such as freedom of oceanic

navigation, the outlook for the U.S.-China military-to-military relationship is far from smooth. Moreover, 

based on the diametrically opposite responses on key security issues from both the U.S. and Chinese 

sides, mistrust is still a prominent obstacle in the progression of the U.S.-China bilateral relationship.

 

21 “Senator: Broad Support For F-16 Sales to Taiwan,” Defense News, May 26, 2011, 

http://www.defensenews.com/story.php?i=6634106&c=AME&s=AIR; and “Taiwan Happy With U.S. Senate Push 

for F-16 Sale,” Defense News, May 29, 2011, http://www.defensenews.com/story.php?i=6663156&c=AIR&s=TOP.

22 “Ros-Lehtinen Criticizes Defense Officials for Providing Chinese Military Access to Sensitive U.S. Facilities,” 

U.S. House of Representatives Committee on Foreign Affairs, May 18, 2011, 

http://foreignaffairs.house.gov/press_display.asp?id=1826.

23 Bill Gertz, “Chinese to view sensitive U.S. sites: Lawmaker sees violation,” The Washington Times, May 17, 

2011, http://www.washingtontimes.com/news/2011/may/17/chinese-to-view-sensitive-us-sites/.

24 John Pomfret, “U.S.-China's Knotty but Necessary Ties,” Council on Foreign Relations, May 13, 2011, 

http://www.cfr.org/china/us-chinas-knotty-but-necessary-ties/p24973.

25 Kurt Campbell and Richard Weitz, “The Limits of U.S.-China Military Cooperation: Lessons from 1995–1999,” 

The Washington Quarterly 29: 1 (Winter 2005–06), pp. 169–186; and Nathan Hodge, “Beijing's Top General Says 

U.S. Overstates China Threat,” The Wall Street Journal, May 19, 2011, 

http://online.wsj.com/article/SB10001424052748704281504576331702045148840.html.