China's Panda Diplomacy Is Becoming A Liability For Beijing

China's practice of sending pandas to foreign countries can be traced to the 7th century, when Empress Wu Zetian gifted two bears to Japan as a gesture of goodwill. However, modern panda diplomacy is often associated with the 1970s. That decade saw China open up and present pandas to a number of major economies in an attempt to build ties, including the US and Japan in 1972, France in 1973 and the UK in 1974.

Due to declining wild panda populations, China stopped giving pandas to other countries by 1984. Pandas were instead sent to foreign zoos on long-term loans, often lasting up to 15 years, with countries paying as much as US$1 million in“conservation fees” per year to keep them.

By the peak of panda diplomacy in 2019, a total of 21 countries or territories outside of China, Macau and Hong Kong had pandas. These were South Korea, Indonesia, Malaysia, Singapore, Qatar, Russia, Taiwan, Germany, Spain, Austria, Denmark, Belgium, Mexico, Australia, Thailand, Finland, Canada, Japan, the Netherlands, US and UK. That number has now dropped to 16.

One reason for this decline is that China has to be careful about which countries it chooses to engage in panda diplomacy with. Many Chinese people regard the giant panda as a national treasure, with the animal carrying deep emotional significance. Because of their status, the perceived mistreatment of pandas abroad can cause Beijing to receive intense backlash from nationalist circles at home.

For instance, when panda Le Le died of natural causes at Memphis Zoo in the US in 2023 and photos of his female companion Ya Ya looking thin and sickly surfaced online, speculation arose on Chinese social media that the US had mishandled the pandas. Some went as far as to accuse Chinese authorities of colluding with the zoo to cover up the incident.

For many of these people, the alleged mistreatment of the pandas was symbolic of what they saw as the US's bullying of China. As one comment on the Weibo Chinese social media platform put it:“Treating our national treasure with such an attitude is an outright provocation of China.” Despite insistence by the Chinese foreign ministry that both pandas had been“well taken care of” in the US, Ya Ya's stay was not extended.

The desire to avoid more public backlash may help explain why China recalled Japan's last two pandas early and did not extend their stay. With tensions between China and Japan running high, it would have been difficult for officials in Beijing to justify leaving these cherished national symbols in the hands of what many Chinese people see as a belligerent rival.

Panda diplomacy remains an effective tool of soft power for China. This was demonstrated by the 178,000 visitors who flocked to Ueno Zoo to catch a glimpse of Xiao Xiao and Lei Lei in the month after it was announced they would be returned. The public response was so strong that the zoo had to restrict visitor numbers to the panda viewing area to 4,800 people per day, with each visit limited to one minute.