Following a dinner with Chinese leader Xi Jinping last year, San Francisco Mayor London Breed requested a pair of pandas for her city's zoo, which was struggling amid declining tourism and an upcoming re-election campaign. The acquisition of pandas was seen as a potential political and public relations boost.
This request led to several months of informal negotiations, with Breed, lacking foreign affairs experience, taking on a diplomatic role. She traveled to China, meeting with high-ranking officials, including the vice president and deputy foreign minister, accompanied by a pro-Beijing newspaper editor.
The discussions were facilitated by the Chinese People's Association for Friendship with Foreign Countries, an organization identified by U.S. intelligence as seeking to influence local leaders. Unlike federal officials, Breed did not receive a C.I.A. briefing on potential counterintelligence threats during her visit.
China aimed to strengthen its relationship with San Francisco, a key technological hub in the U.S. Although there is no evidence of wrongdoing, intelligence officials note China's increasing focus on local government influence as its power in Washington wanes.
Pandas have historically served as a tool for China to cultivate international relationships and shape policy, particularly concerning Taiwan. Exchanges involving pandas allow Chinese leaders to enhance their country's image abroad.
Previous panda negotiations have seen similar tactics, where Chinese diplomats reportedly attempted to influence American politicians on issues beyond wildlife conservation. As U.S.-China relations have soured, local diplomacy has gained importance.
Pandas, which are crucial for wildlife conservation, are rented by zoos for approximately $1 million annually, with the funds intended for panda protection. However, investigations have shown that China has captured more pandas than it has released over the years, raising concerns about the welfare of the species.
Despite the challenges, pandas remain a significant draw for zoos, generating substantial attendance and merchandise sales. The Chinese Embassy emphasized that pandas promote friendship and cooperation between China and the U.S.
Breed's office stated that her trip aimed to enhance tourism for San Francisco, and she announced that two pandas are set to arrive in the city next year.
The Chinese People's Association for Friendship with Foreign Countries operates as a Communist Party arm, focusing on outreach to foreign local governments. Intelligence officials have warned that China's efforts to cultivate U.S. leaders at the local level have intensified.
California's historical ties with China have fostered collaboration but also raised security concerns. Local officials typically lack the in-depth briefings provided to congressional delegations, making them more vulnerable to manipulation.
In Oakland, efforts to secure pandas were met with unreasonable demands from Chinese officials, while similar negotiations in Omaha fell apart due to political disagreements. In San Diego, recent panda negotiations also reflected the complexities of U.S.-China relations.
As San Francisco awaits its pandas, Breed lost her re-election bid, but her successor expressed hopes of continuing the efforts. A recent report highlighted safety concerns at the San Francisco Zoo, which may impact future plans for the pandas.
China's ambassador to the U.S. remarked on the American people's fondness for pandas, emphasizing the animals' role in fostering goodwill.