当前，世界百年变局加速演进，全球治理体系深刻调整，单边主义、保护主义抬头，全球南方国家发展诉求更加凸显。在此背景下，中国如何持续提供全球公共产品、深化南南合作，并在“十五五”时期进一步发挥引领和赋能作用，成为观察中国参与全球治理的重要议题。对此，清华大学公共管理学院张鹏龙副教授接受《中国日报》专访，阐释了中国在全球公共产品供给中的实践进展、现实挑战与未来路径，指出中国应从公共产品的“提供者”进一步走向“赋能者”，推动全球南方国家从“受益者”转向“共建者”，共同探索南南合作新模式。
张鹏龙清华大学公共管理学院副教授、党委副书记以下为文章原文及中文译文：Provider and enabler By Zhang Penglong | China Daily Global China's provision of global public goods is expected to be more effectuated amid the world’s fragmentation
The world today is undergoing intensifying fragmentation. Unilateralism, hegemonism and protectionism are on the rise; geopolitical conflicts are flaring up; the global governance system is under strain; economic globalization is facing headwinds; and the development gap between the Global North and the Global South remains glaring. As 2026 marks the start of China's 15th Five-Year Plan (2026-30) period, a systematic review of China's practices in providing global public goods, an analysis of risks and challenges, and an exploration of pathways for coordinated development will not only take stock of China's engagement with the world in the new era, but also offer forward-looking insights into the collective modernization of the Global South. This will provide practical support for China to break new ground amid global changes during the 15th Five-Year Plan period.
Guided by the vision of global governance featuring extensive consultation, joint contribution and shared benefits, China has steadily provided global public goods and emerged as a core force advancing self-strengthening and common development of the Global South, making remarkable breakthroughs in relevant practices.
First, a refined conceptual framework is reshaping the narrative of global development. China has put forward the Global Development Initiative, Global Security Initiative, Global Civilization Initiative and Global Governance Initiative, forming a comprehensive conceptual framework. Rooted in development-first, people-oriented and inclusive principles, this framework aligns closely with the development aspirations of Global South countries. The 15th Five-Year Plan prioritizes high-quality development and innovation-driven growth and pledges to deepen solidarity and cooperation with developing countries and support the collective self-strengthening of the Global South. It charts a course for China's development while offering a model of reference for the modernization of the Global South.
Second, deepened cooperation mechanisms with countries participating in the Belt and Road Initiative are forming a flagship platform. The BRI has become a widely welcomed international public good, evolving with "hard connectivity", "soft connectivity" and "heart-to-heart connectivity". Flagship projects such as the China-Europe Railway Express and the China-Laos Railway have directly boosted industrialization in host countries, and trade between China and the Belt and Road partner countries has repeatedly set records. In the 15th Five-Year Plan period, the BRI will focus more on sustainable and green development, align more closely with the Global Development Initiative, and help the Global South break out of low-end lock-in in the global value chain.
Third, high-performance trade platforms are empowering trade growth in the Global South. The Canton Fair and the China International Import Expo form a mutually empowering system of trade-related public goods, serving as core channels for the Global South to integrate into global trade and share in China's vast market. The Canton Fair has evolved from a commodity trading venue into a comprehensive platform that leads rule-setting and promotes green development, facilitating stable trade linkages for enterprises from the Global South. The CIIE continues to expand opening-up and support for the Global South, offering free booths to least-developed countries and helping them bring their specialty products to the Chinese market, establishing itself as a vital international public good.
But against the backdrop of deepening global fragmentation, China's provision of global public goods and deepening South-South cooperation face multiple hurdles stemming from the external environment, domestic transformation and diverse demands.
The first is the intensifying global governance fragmentation. Unilateralism and hegemonic practices pose growing threats. Some Western countries have instrumentalized development issues and over-securitized cooperation, frequently cutting off supplies and withdrawing from international agreements, thereby severely undermining the international order and the multilateral trading system. The World Trade Organization dispute settlement mechanism remains paralyzed; climate finance commitments are long unfulfilled; global rules for the digital sphere are lacking; and the voice of the Global South in global governance is seriously disproportionate to its economic weight, widening the global governance deficit.
The second is the pressure to upgrade and improve the quality of global public goods. During the 15th Five-Year Plan period, China is likely to prioritize its supply more from quantity to quality. A lingering imbalance between "hard" and "soft" cooperation calls for fully integrating high-quality development into projects with the Global South and moving from scale expansion to quality enhancement. Meanwhile, China's rule-making in emerging areas such as green and digital trade is still evolving, requiring closer alignment of standards and policy coordination with the Global South. At the same time, enterprises still face high compliance costs and difficulties in project implementation.
The third is the diversified demands of the Global South, which complicate targeted supply. The Global South comprises economies at varying levels of development, with distinct resource endowments and priorities. Shifting from "blanket coverage" to "targeted support" in public goods supply demands greater institutional innovation and model optimization from China.
In the 15th Five-Year Plan period, China and other Global South countries should join forces to transition China from being merely a provider to also an enabler of public goods, and other Global South countries from being just a beneficiary to also a co-builder of cooperation, exploring new models for South-South cooperation.
On the one hand, China will upgrade its global public goods supply system. As outlined in the 15th Five-Year Plan, it will strengthen synergy between the BRI and the Global Development Initiative, translate strategic priorities such as artificial intelligence and green energy into key drivers of South-South cooperation, promote joint research and technology transfer, and extend the benefits of innovation to the Global South. The Canton Fair and CIIE will be further upgraded: The Canton Fair will explore a dedicated Global South digital trade zone to support the digital transformation of developing countries; the CIIE will refine support programs for the least developed countries and improve full-chain exhibition services. Multilateral mechanisms such as BRICS and the Shanghai Cooperation Organization will be leveraged to advance the reform of international financial institutions and strengthen the voice of the Global South in global governance.
On the other hand, the Global South should enhance its development autonomy to deepen win-win cooperation. Such cooperation will be increasingly defined by deeper alignment with the strategic direction of China's 15th Five-Year Plan, prioritization of cooperation needs based on national conditions, active shift from passive reception to active planning, and integration of national development strategies with China's plan. It will strengthen policy coordination and experience-sharing through regional mechanisms such as the African Union, the Association of Southeast Asian Nations and the Community of Latin American and Caribbean States to build collective momentum for cooperation with China and improve project sustainability. It will also improve domestic institutional support, strengthen personnel training and capacity building, and enhance capabilities to host and implement projects for genuine mutual benefit.
在世界碎片化加剧的背景下，中国提供全球公共产品的作用有望进一步发挥。
当今世界正经历日益加剧的碎片化。单边主义、霸权主义和保护主义抬头，地缘政治冲突频发，全球治理体系承压，经济全球化遭遇逆流，全球北方与全球南方之间的发展鸿沟依然突出。2026年是中国“十五五”规划（2026—2030年）开局之年。系统回顾中国提供全球公共产品的实践，分析其中面临的风险与挑战，并探索协同发展的路径，不仅有助于总结新时代中国与世界互动的经验，也将为全球南方共同实现现代化提供前瞻性思考。这将为中国在“十五五”时期于全球变局中开创新局提供实践支撑。
在共商共建共享的全球治理观指引下，中国持续稳定地提供全球公共产品，已成为推动全球南方自强和共同发展的核心力量，并在相关实践中取得显著突破。
首先，更加完善的理念框架正在重塑全球发展叙事。中国提出全球发展倡议、全球安全倡议、全球文明倡议和全球治理倡议，形成了较为完整的理念框架。这一框架以发展优先、以人民为中心和包容普惠为根基，与全球南方国家的发展愿望高度契合。“十五五”规划将高质量发展和创新驱动增长置于优先位置，并提出深化同发展中国家的团结合作，支持全球南方联合自强。这既为中国自身发展指明方向，也为全球南方现代化提供了可资借鉴的模式。
其次，与共建“一带一路”国家深化合作的机制正在形成旗舰平台。“一带一路”倡议已成为广受欢迎的国际公共产品，并在“硬联通”“软联通”和“心联通”中不断发展。中欧班列、中老铁路等标志性项目直接促进了东道国工业化进程，中国同“一带一路”合作伙伴的贸易额也屡创新高。“十五五”时期，“一带一路”将更加聚焦可持续发展和绿色发展，与全球发展倡议形成更紧密衔接，帮助全球南方摆脱在全球价值链中的低端锁定。
第三，高水平贸易平台正在赋能全球南方贸易增长。广交会与中国国际进口博览会共同构成相互赋能的贸易类公共产品体系，成为全球南方融入全球贸易、共享中国广阔市场的核心渠道。广交会已从商品交易场所发展为引领规则制定、促进绿色发展的综合性平台，为全球南方企业建立稳定贸易联系提供便利。进博会则持续扩大开放，持续加大对全球南方的支持力度，为最不发达国家提供免费展位，帮助其特色产品进入中国市场，日益成为重要的国际公共产品。
但在全球碎片化不断加深的背景下，中国提供全球公共产品、深化南南合作，也面临来自外部环境、国内转型和需求多元化等方面的多重障碍。
首先是全球治理碎片化加剧。单边主义和霸权主义实践带来的威胁日益上升。一些西方国家将发展议题工具化，并对合作进行过度安全化处理，频繁采取“断供”、退出国际协议等做法，严重损害国际秩序和多边贸易体系。世界贸易组织争端解决机制仍处于瘫痪状态，气候资金承诺长期未能兑现，数字领域全球规则仍然缺失，全球南方在全球治理中的话语权与其经济体量严重不匹配，全球治理赤字进一步扩大。
其次是全球公共产品提质升级的压力。“十五五”时期，中国很可能将公共产品供给重点更多地从数量转向质量。当前，“硬合作”与“软合作”之间仍存在一定失衡，需要将高质量发展理念充分融入同全球南方合作的项目之中，推动合作从规模扩张转向质量提升。与此同时，中国在绿色贸易、数字贸易等新兴领域的规则制定仍在发展之中，需要与全球南方进一步加强标准对接和政策协调。同时，企业仍面临较高合规成本和项目落地困难。
第三是全球南方需求日益多样化，使精准供给更加复杂。全球南方涵盖了发展水平不同、资源禀赋各异、优先事项不尽相同的经济体。公共产品供给要从“普遍覆盖”转向“精准支持”，要求中国在制度创新和模式优化方面作出更大努力。“十五五”时期，中国和其他全球南方国家应携手推动中国从公共产品的单纯“提供者”进一步转变为“赋能者”，推动其他全球南方国家从合作的单纯“受益者”转变为“共建者”，共同探索南南合作新模式。
一方面，中国将升级全球公共产品供给体系。按照“十五五”规划部署，中国将加强“一带一路”倡议与全球发展倡议之间的协同，把人工智能、绿色能源等战略重点转化为南南合作的重要驱动力，推动联合研究和技术转移，让创新成果惠及全球南方。广交会和进博会也将进一步升级：广交会可探索设立面向全球南方的数字贸易专区，支持发展中国家数字化转型；进博会可进一步完善面向最不发达国家的支持计划，提升全链条参展服务。中国还将依托金砖国家、上海合作组织等多边机制，推动国际金融机构改革，增强全球南方在全球治理中的话语权。
另一方面，全球南方也应增强发展自主性，以深化互利共赢合作。此类合作将越来越多地体现为与中国“十五五”规划战略方向的深入对接，基于本国国情明确合作需求优先序，主动从被动接受转向主动谋划，并将本国发展战略与中国规划相衔接。全球南方国家应通过非洲联盟、东南亚国家联盟、拉美和加勒比国家共同体等区域机制，加强政策协调和经验分享，形成同中国合作的集体合力，并提升项目可持续性。同时，也应完善国内制度支持，加强人才培养和能力建设，提升项目承接和执行能力，真正实现互利共赢。
原文链接：https://www.chinadaily.com.cn/a/202604/21/WS69e75cf9a310d6866eb44b00.html来源丨China Daily供稿丨国际所编辑丨王瑞琪审核丨朱旭峰