Research Briefing

17 August 2023

By John Curtis
Taiwan: History, politics and UK
relations

Summary
1 Taiwan’s history and domestic politics
2 International recognition of Taiwan and membership of
international organisations
3 Taiwan’s relations with the United Kingdom

commonslibrary.parliament.uk
Number Taiwan: History, politics and UK relations

Contributing Authors
Matthew Ward, UK-Taiwan trade statistics, EPAS

Image Credits
Taiwan-flag by Arabani. Licensed under CC BY-SA 2.0

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2 Commons Library Research Briefing, 17 August 2023

Taiwan: History, politics and UK relations

Contents

Summary 4

1 Taiwan’s history and domestic politics 7

1.1 History of Taiwan 7

1.2 Domestic politics 10
1.3 2022 local elections and forthcoming 2024 presidential elections 12

2 International recognition of Taiwan and membership of

international organisations 15

2.1 International recognition of Taiwan 15

2.2 Taiwan’s membership of international organisations 16
2.3 UK policy 19

3 Taiwan’s relations with the United Kingdom 21

3.1 Diplomatic relations 21

3.2 Defence relations 22
3.3 UK-Taiwan trade statistics and relations 23

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Taiwan: History, politics and UK relations

Summary

Taiwan is an island in the South China Sea, around 100 miles off the coast of
China, on which nearly 24 million people live. The Communist-controlled
People’s Republic of China, based on mainland China, considers Taiwan a
breakaway province that must return to the mainland’s control.

According to Taiwan’s constitution its official name is the Republic of China.

This is a remnant of a political entity formed on the Chinese mainland more
than 100 years ago. The Republic of China does not officially recognise the
People’s Republic, and its constitution still asserts sovereignty over mainland
China.

The People’s Republic of China’s ‘One China’ principle asserts that Taiwan is
an integral part of China, and as part of this, that other countries must only
maintain official diplomatic relations with itself. It also opposes Taiwan’s
participation in international organisations.

The UK, like most other countries, does not recognise Taiwan as a state, nor
does it maintain formal diplomatic relations with the island.

This briefing looks at Taiwan’s history and politics, membership of

international organisations, and relationship with other states, including the
UK.

Taiwan’s politics and approach to the

mainland
Taiwan was a military dictatorship for several decades, and martial law was
imposed between 1949 and 1987. From that period through the 1990s Taiwan
transitioned to democracy, holding its first direct presidential elections in
1996.

The UK Foreign, Commonwealth and Development Office describes Taiwan as

a “stable, vibrant democracy with a free press and independent judiciary”.

Taiwan’s current President is Tsai Ing-wen, of the Democratic Progressive

Party (DPP). The DPP did support declaring formal independence for Taiwan in
the 1990s. But now, particularly under the leadership of Tsai Ing-wen, it
supports the status-quo stating that Taiwan is already independent as the
Republic of China (PDF).

The other main political party, the Kuomintang (KMT), still formally supports
the Republic of China’s sovereignty over the whole of China. When in power

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Taiwan: History, politics and UK relations

over the last few decades, it has generally sought to defuse tensions with the
People’s Republic of China, however, and build economic and social ties with
the mainland.

The next presidential election in Taiwan will be held in January 2024. Having
served two terms, Tsai will be barred from running.

International recognition of Taiwan

Only 13 nations recognise Taiwan as a state and have formal diplomatic ties
with it. The UK is part of the majority that do not. In recent years, the People’s
Republic of China has been putting countries that have diplomatic relations
with Taiwan under greater pressure to break ties.

Countries and international organisations will often refer to Taiwan officially

by the name of its capital, Taipei, or sometimes Chinese Taipei.

UK-Taiwan relations
The UK Government says the dispute between Taiwan and the People’s
Republic of China should be resolved “through dialogue, in line with the views
of the people on both sides of the Taiwan Strait”. It has no plans to recognise
Taiwan as a state. The UK does support Taiwan’s participation in international
organisations as an observer.

The UK’s diplomatic presence on the island is maintained through an outpost

called the British Office Taipei.

Relations between the UK and Taiwan have strengthened over the last few
years. Part of the reason is the UK’s foreign policy aim to “tilt to the Indo-
Pacific” set out in the 2021 Integrated Review of Security, Defence,
Development and Foreign Policy.

The UK has in recent years sent its warships on operations in the waters
around Taiwan, which has angered China. The UK has, however, ruled out
providing military assistance to Taiwan.

The issue on which the Taiwan and UK most regularly engage is trade, and the
two sides have held annual ministerial trade talks since 1991. In July 2023, the
UK Department for Business and Trade official talks on an Enhanced Trade
Partnership would start “in due course”. This will not be a full free trade
agreement but will instead be supported by political agreements called
‘memoranda of understanding’.

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Taiwan: History, politics and UK relations

Further reading
For more on Taiwan see Library research briefings:

• Taiwan: Relations with China

• Taiwan: Relations with the United States

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 Taiwan: History, politics and UK relations

1 Taiwan’s history and domestic politics

1.1 History of Taiwan

Taiwan’s complex history explains its fraught relations with the People’s
Republic of China, and why so few countries have diplomatic relations with
the Island.

Early history to the Chinese Civil War

Taiwan’s indigenous people are ethnic Malays from Southeast Asia, whose
ancestors migrated to the island thousands of years ago. 1

The island seems to have first appeared in Chinese records in AD239, when an
emperor sent an expeditionary force to explore the area – something Beijing
uses to back its territorial claim. 2

Other cultural groups include the Hakka, and the majority Hoklo. Both
originated from mainland China and are ethnically Han-Chinese. The Hakka
have a distinct language and culture and originated in northern China, but
then moved south to Guangdong and Fujian provinces. The Hoklo came from
Fujian province. In the 17th Century both the Hakka and Hoklo migrated in
large numbers to Taiwan. 3

Europeans named the island Formosa, and this was the name many European
countries used for the island until the mid-20th Century.

After a few decades as a Dutch colony (1624-1661), Taiwan was administered

by China's Qing dynasty from 1683 to 1895. However, the Qing Empire’s control
of the island was fairly loose, and it wasn’t until 1885 that Taiwan was
incorporated as a full province of China, after more settlers from the
mainland moved there.

Ten years later, in 1895, the Qing Empire was forced to cede control of Taiwan
to Japan, after it was defeated in the first Sino-Japanese war. 4

1
J Manthorpe, Forbidden Nation: A History of Taiwan, 2009, pp xi-xii.
2
“What's behind the China-Taiwan divide?”, BBC News, 26 May 2021.
3
J Manthorpe, Forbidden Nation: A History of Taiwan, 2009, pp xi-xii
4
Sovereignty was ceded in perpetuity to Japan under the Treaty of Shimonoseki of 1895.

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Taiwan: History, politics and UK relations

In mainland China, a revolution in 1911 brought down the Qing dynasty. A new
Republic of China was formed in 1912. One of the leaders of the 1911 revolution
was Sun Yat-sen, who founded the Kuomintang (Nationalist Party of China)
and was briefly the Republic’s President. The Republic struggled to maintain
control of China, with warlords taking over swathes of territory. Another
challenge to its authority was the Communist Party of China, founded in 1921.
Tensions between the Communists and the Kuomintang-led Republic of China
Government led to the start of a civil war in 1927.

Chinese Civil War and Second World War

The Chinese Civil War between the Kuomintang-led Nationalist Government
and the Communists continued until 1937, when Japan invaded mainland
China, in a conflict called the Second Sino-Japanese War. The Kuomintang
and the Communists agreed to a truce to both fight the Japanese forces.

In 1943 at the Cairo Conference, President Roosevelt of the US and UK Prime

Minister Winston Churchill met with Republic of China President and
Kuomintang leader President Chiang Kai-shek. They agreed that territories
taken from China by Japan, including Manchuria and Taiwan, would be
returned to the control of the Republic of China after Japan was defeated (the
Allied forces of the Second World War had been fighting Japan in the Pacific
region since December 1941). 5

Taiwan returned to China and civil war resumes

After the Japanese surrender at the end of World War Two, the Republic of
China Government took back control of the island of Taiwan.

The end of the war also saw the Communists and Kuomintang resume
hostilities. The Republic suspended some of the elements of its new
constitution, such as Presidential term limits, in what were called “temporary
provisions” to deal with the emergency of the Civil War. These temporary
provisions were kept and used by the Republic of China to maintain the
Kuomintang’s later rule in Taiwan.

In 1947 large numbers of Republic troops were dispatched from mainland

China to suppress a large-scale uprising of Taiwan residents, upset at the
violent conduct of soldiers already stationed there and other issues such as
official corruption. Thousands were killed in the crackdown. This is known as
the ‘228 incident’ after the date it occurred, the 28 February. 6

5
China joined the Allied Powers formally in December 1941, a few days after the Japanese attack on
Pearl Harbor, and its invasion of British colonies in the Indo-Pacific, when it signed a declaration of
war against Japan, Germany and Italy. To some extent, therefore, the Second Sino-Japanese War
that was fought from 1937-45 between China and Japan “merged” with the Pacific theatre of the
Second World War. Both conflicts came to an end with the defeat of Japan in 1945.
6
“Taiwan’s White Terror: Remembering the 228 incident”, Foreign Policy Research Institute, Thomas
Shattuck, 27 February 2017.

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Taiwan: History, politics and UK relations

Kuomintang defeated by Communists and retreat to

Taiwan
In 1949 after military defeat by Communist forces, the Republic of China
government, led by Chiang Kai-shek, retreated and relocated to Taiwan. Over
the next several years 1.2 million people from mainland China fled to the
Island. On 1 October 1949, Mao Zedong, Chairman of the Communist Party,
formally declared the establishment of the People’s Republic of China.

Martial law declared and domination by mainlanders

Martial law was declared in Taiwan in 1949 and continued in force until 1987.
The Kuomintang justified the use of this power by saying it was necessary
because of the threat of invasion by Communist forces.

The Republic of China continued to see itself as the legitimate government of

the whole of China and refused to the recognise the People’s Republic.
Republic of China officials continued to represent China at international
organisations like the UN, and, at first, few countries recognised the People’s
Republic.

Most of the politicians elected to represent China’s mainland provinces in

1947-48 relocated to Taiwan with the Kuomintang Government. These
mainland representatives continued to sit in the legislature and had their
legislative terms extended indefinitely, with the Kuomintang Government
saying fresh elections would be held when they retook China.

Most positions in the Republic Government were held by Chinese mainlanders,

and this elite controlled the civil service and military. 7

Thousands of political dissidents were imprisoned in the early 1950s,

ostensibly to crackdown on Communist “spies”, however the arrests targeted
almost anyone who might pose a threat to the Kuomintang regime. The years
of authoritarian control in Taiwan are known as the “white terror”. 8

Chiang Kai-shek ruled unchallenged as an effective dictator, until his death in

1975. He oversaw a few decades of very high economic growth as Taiwan
rapidly industrialised.

Move towards democracy and ‘Taiwanisation’

In the 1970’s the Kuomintang made a greater effort to include Taiwan natives
in the party, though it took some time for them to achieve senior positions. It
also made some limited democratic reforms.

7
K Maguire, The Rise of Modern Taiwan, 1998, pp 110-11.
8
The White Terror period is sometimes said to have started with the “228 massacre”, in February
1947, and continued till martial law was ended in 1987. Though there was a particularly
concentrated period of arrests of dissidents in the 1950’s.

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 Taiwan: History, politics and UK relations

In 1969 elections started to be held for Taiwan’s legislative bodies. 9 However,

these elections were only for a small number of seats, and opposition parties
were banned, so non-Kuomintang candidates could only stand as
independents. Elected representatives were outnumbered by unelected life
members.

Chiang Kai-shek’s son Chiang Ching-kuo took over the running of the
Kuomintang. Chiang Ching-kuo became Premier in 1972 and President in
1978. Although also effectively President-for-life, he did not, according to
political scientist Professor Dafydd Fell “try to construct a personality cult in
the way that his father had done, and decision-making became more
collective”. 10

During this period, however, the Kuomintang maintained complete control of

the state and mainstream media. 11

The move to democracy finally achieved significant momentum in the 1980’s.

The ban on opposition parties was lifted in 1986, and in 1987 martial law was
ended.

In 1991, competitive elections for the majority (but not all) seats in the
National Assembly were held for the first time. All the surviving mainland-
elected delegates were obliged to finally relinquish their seats. In 1992 the
main legislative body, the Legislative Yuan, held direct elections for all its
seats for the first time. The National Assembly was later abolished.

Taiwan elected its first non-Kuomintang politician as President in 2000 when

Chen Shui-bian of the Democratic Progressive Party (DPP) was elected.

1.2 Domestic politics

Constitution today
Taiwan has a President who serves as Head of State. Presidents are directly
elected on a joint ticket with a Vice President for four-year terms and can
serve two terms in total.

The President has control over foreign affairs and defence, including heading
the armed forces. They appoint the Premier (Prime Minister), and the Premier
advises the President on appointments to the ‘Executive Yuan Council’
(Cabinet) and other senior Government posts.

9
There were two legislative bodies, the National Assembly and the Legislative Yuan at that time.
10
Dafydd Fell, Taiwan: Recent history: Shift from Hard to Soft Authoritarianism, in Europa World
online. Retrieved 3 August 2023.
11
As above.

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Taiwan: History, politics and UK relations

The Premier runs the government on a day-to-day basis and steers the
domestic policy agenda.

The Legislative Yuan, or parliament, is the unicameral legislature of Taiwan.

Members are voted for four-year terms as part of the general elections that
also choose the President.

Taiwan’s constitution derives from the 1947 constitution of the Republic of

China. The constitution has been revised repeatedly over the years,
particularly since the democratic era, but it contains some original elements.
This includes the name the Republic of China, and a territorial claim to
mainland China. 12

Two-party system
Since the transition to democracy Taiwan has settled into a two-major-party
system (there are other smaller parties, but they have never held executive
power).

The Kuomintang (KMT), was the ruling party under the period of martial law
and effective dictatorship, though is now committed to democratic politics.
The Democratic Progressive Party (DPP) grew out of the Taiwanese democracy
movement against the KMT.

In 2000 the DPP gained the Presidency for the first time, ending more than
half a century of KMT rule over Taiwan. The DPP then won legislative elections
the following year.

At the 2008 election, the KMT regained the Presidency and its majority in the
legislature (elections for both now took place in the same years).

In the 2016 election the pendulum swung back to the DPP after they won a
majority of seats in the legislature and the DPP candidate Tsai Ing-wen won
the presidential election. President Tsai was re-elected in January 2020; and
the DPP retained its lead in the legislature, albeit with a slightly reduced
majority.

Party policies on China and Taiwanese identity

The KMT and DPP do not fit neatly into Western political conceptions of left or
right. 13 One of the most important dividing lines between them is their
approach to China and Taiwanese identity.

The KMT’s stance for most of its existence was that Taiwan was part of China,
but the Republic of China Government based in Taiwan was the legitimate
government of that country, not the People’s Republic of China. Whilst in

12
It also has references to delegates from Mongolia. Taiwan only started treating Mongolia as an
independent country in 2002, and the Government claimed in 2012 that the constitution does not
include Mongolia as part of the Republic of China’s sovereign territory.
13
Dafydd Fell, Government & Politics in Taiwan, 2012, pp 84-85.

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 Taiwan: History, politics and UK relations

power in the democratic era, particularly under the Presidency of Ma Ying-

jeou (2008-16), it has also sought to ease tensions with the People’s Republic
of China and build up engagement with the mainland, including economic
links.

The DPP has asserted that Taiwan is culturally and politically separate from
mainland China. It did support declaring formal independence for Taiwan in
the 1990s. But now, particularly under the leadership of Tsai Ing-wen, it
asserts support for the status-quo stating that Taiwan is already independent
as the Republic of China. In its charter the DPP states that any major changes
to the status quo of its relationship with the People’s Republic would have to
be done through public referendum, but it has not advocated for such a vote
in the last few decades. 14

For more information on the parties’ stance on China see Library’s research
briefing on China and Taiwan relations.

1.3 2022 local elections and forthcoming 2024

presidential elections

Taiwan held local elections at the end of November 2022. The ruling DPP party
performed poorly, winning only five of 22 municipalities, which is the party’s
worst results in 36 years. It won six municipalities in 2018. 15 It also lost several
mayoral races and failed to win back the mayoral seat in the capital Taipei
from the Nationalist (KMT) party. As a result, President Tsai Ing-wen resigned
as head of the ruling Democratic Progressive party (DPP). This does not affect
her role as President and is part of an established pattern that other
Presidents have taken after similar electoral defeats. 16

However, while these elections are a setback for the DPP, they were primarily
about local issues as explained in an analysis of the election results by the
Asia-focused Diplomat magazine:

[T]he KMT’s victories are not a sign that Taiwanese voters have begun to swing
in a pro-China direction. Cross-strait politics was not the dominant frame of
this election, as it usually is for presidential and legislative elections, in spite of
some attempts by DPP candidates to introduce this as an issue. Namely, local
elections in Taiwan are primarily about local issues, rather than international
ones that take greater precedence for elections at the presidential and
legislative level. 17

14
“No, Taiwan’s President Isn’t ‘Pro-Independence’”, The Diplomat, 23 April 2020.
15
“Once Again, KMT Scores Big in Taiwan’s Local Elections”, The Diplomat, 28 November 2022.
16
“Taiwan president resigns as party head after local election losses”, The Guardian, 26 November
2022.
17
“Once Again, KMT Scores Big in Taiwan’s Local Elections”, The Diplomat, 28 November 2022.

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Taiwan: History, politics and UK relations

The results are also not necessarily indicative of what might happen in future
national elections. The KMT similarly did very well in local elections in 2018, to
then lose the Presidential election in 2020.

The next presidential election is due in 2024. Tsai Ing-wen cannot run again
due to term limits. An analysis on the Nikkei Asia website acknowledges that
the DPP party's “advantage in the run-up to the 2024 presidential election has
been shaken to a certain extent” and that it will “now come under increasing
pressure ahead of the 2024 presidential and parliamentary elections, amid
global economic headwinds and geopolitical uncertainty”. 18

Jing Bo-jiun, a research fellow at the Institute for Security and Development
Policy, a Stockholm-based think tank, told Nikkei Asia that there will likely be
little effect on Taiwan-China relations as a result of the elections:

There won't be major shifts in Taiwan's foreign policy, because the local
elections are neither a rebuke nor an affirmation on the country's international
relations. I expect Tsai to likely continue pursuing her 'steadfast diplomacy'
approach and enhance ties with the United States and other democratic
partners. 19

National security issues, principally Taiwan’s relationship with China, will very
likely be front and centre of the 2024 Presidential elections. The KMT party
has been shifting its traditional support for better Taiwan-China relations,
towards a less accommodative approach. The 2024 elections should clarify
further how far this policy shift will go.

The favoured DPP Presidential candidate is reported to be current Vice-

president and DPP Party Chairman, William Lai. A self-declared “Taiwan
Independence worker”, Lai has stated that “Taiwan’s people can decide their
future, and that the Republic of China – Taiwan’s formal name – and the
People’s Republic of China are “not subordinate to each other”. 20

The KMT, the main opposition party, has not yet decided on a candidate,
though New Taipei City Mayor Hou You-yi is the most popular candidate
amongst potential KMT presidential nominees. 21 Other prospective candidates
include KMT Chairman Eric Chu. With Vice-Chairman Andrew Hsia’s visits to

18
“Taiwan's KMT has a mountain to climb for 2024 presidential race”, Nikkei Asia, 29 November 2022.
19
“Taiwan's KMT has a mountain to climb for 2024 presidential race”, Nikkei Asia, 29 November 2022.
20
“Taiwan presidential candidate William Lai pledges to protect island against China”, The Straits
Times, 15 March 2023.
21
“KMT Factional Divisions and their Implications for the 2024 Election”, Global Taiwan Institute, 8
March 2023.

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Taiwan: History, politics and UK relations

mainland China in February 2023, the KMT declared its commitment to the
1992 Consensus,22 and its opposition to Taiwan Independence.23

22
“…the '92 Consensus is a fundamental political commitment for Taiwan and the mainland,
accepted by the mainland. You know, this is actually what Taiwan asked for, it's not the mainland
imposing that on Taiwan”. Speech by former President Ma Ying-Jeou, “Views from a Former
President: Taiwan Past, Present, Future”, Brooking Institute, 7 March 2017.
23
“Chinese Communist Party, Taiwan’s KMT must defend 1992 consensus as one, Beijing’s top cross-
strait policymaker says”, South China Morning Post, 10 February 2023; and “Andrew Hsia’s China
Visit and the Future of Cross-Strait Relations”, The Diplomat, 14 February 2023.

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 Taiwan: History, politics and UK relations

2 International recognition of Taiwan and

membership of international
organisations

2.1 International recognition of Taiwan

Currently only 13 countries have formal diplomatic relations with Taiwan. 24

That number has shrunk in recent years, in part because of pressure from
China.

Since Taiwan’s DPP party, which asserts a distinct Taiwanese identity and
autonomy for Taiwan, returned to power in 2016, China appeared to increase
pressure on the remaining countries that recognise Taiwan. 25 Between 2016
and 2021, eight countries broke ties with the island:

• 2016: Sao Tome and Principe

• 2017: Panama

• 2018: Burkina Faso, Dominican Republic and El Salvador

• 2019: Kiribati and the Solomon Islands

• 2021: Nicaragua. 26

On 14 March 2023, the president-elect of Honduras, Xiomara Castro,

announced a switch of formal diplomatic relations from Taiwan to the
People’s Republic of China, reducing the number of Taiwan’s diplomatic allies
to 13. 27

Over the same period, China has also increased its efforts to block Taiwan
from participating in international organisations.

Taiwan’s development into a democracy in the 1990s and fraying relations

between many Western countries and China over the last several years,

24
Taiwan’s remaining allies are: Eswatini, the Holy See, the Marshall Islands, Nauru, Palau, Tuvalu,
Belize, Guatemala, Haiti, Paraguay, Honduras, the Federation of Saint Christopher and Nevis, St
Lucia, and St Vincent and the Grenadines. Ministry of Foreign Affairs, Republic of China (Taiwan)-
Diplomatic Allies (mofa.gov.tw), accessed 3 August 2023.
25
“The Economist Explains: Why Taiwan is not recognised on the international stage”, The Economist,
17 May 2020.
26
World Population Review, Countries that Recognize Taiwan 2023, accessed 21 July 2023.
27
“Honduras to switch ties from Taiwan to China, says president”, The Guardian, 15 March 2023.

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 Taiwan: History, politics and UK relations

seems to have increased support in some of those countries for deepening

ties with Taiwan, and supporting its participation in international fora. 28
None, however, have expressed support for establishing formal diplomatic
ties or recognising Taiwan as an independent country.

All would be mindful that China would see such a move as an extreme
provocation.

2.2 Taiwan’s membership of international

organisations

United Nations
After losing the Chinese Civil War in 1949, Chiang Kai-shek’s Kuomintang’s
government continued to represent China as the Republic of China at the UN.

Disagreement grew over who was the legitimate representative of China.

Initially the US managed to block efforts to recognise the People’s Republic of
China. However, during the 1950s and 1960s decolonisation changed the
composition of the UN General Assembly, with a large number of newly
independent nations from South America, Asia and Africa, supporting the
People’s Republic’s bid to be recognised as the sole legitimate representative
of China.

In December 1961, the General Assembly passed resolution 1668 (XVI), noting
the “serious divergence of views” that existed over the representation of
China, and resolved that the issue be designated as an “important question”
under Article 18 of the UN Charter, meaning that any resolution to settle the
question would require a two-thirds majority vote in the UN’s General
Assembly.

In October 1971, the General Assembly passed resolution 2758 by the required
two-thirds majority, which recognised the People’s Republic of China as the
only lawful representative of China at the United Nations, and expelled the
Republic of China’s delegation. 29

At the same session the United States attempted to submit its own resolution
proposing dual representation from the People’s Republic of China and
Republic of China at the UN. However, the resolution above was voted on first
and accepted. A US motion to amend the resolution, removing the “expulsion
of Chiang” part was also rejected.

28
“Taiwan’s engagement with the world: Evaluating past hurdles, present complications, and future
prospects”, Atlantic Council, 20 December 2022.
29
“The Distortion of UN Resolution 2758 and Limits on Taiwan’s Access to the United Nations”, German
Marshall Fund US, Jessica Drun & Bonnie S. Glaser, 24 March 2022.

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Taiwan: History, politics and UK relations

From 1993, Taiwan submitted annual applications to the UN for membership,

under the name of the Republic of China. In 2009 it submitted an application
under the name Taiwan instead. All these applications were rejected. 30

World Trade Organization

In 1992 Taiwan was granted observer status at the General Agreement on
Tariffs and Trade (GATT) as the Separate Customs Territory of Taiwan,
Penghu, Kinmen and Matsu (Chinese Taipei). GATT became the World Trade
Organization (WTO) in 1995 and Taiwan became a full member in January
2002 under the same name, a few months after China’s own accession in
December 2001.

Taiwan had long qualified for membership but was held back for more than a
decade by China's objections. 31 As well as states, the WTO allows any
“customs territory having full autonomy in the conduct of its trade policies” to
join the organisation. 32 Hong Kong is also a member of the WTO, having its
own customs territory.

International Olympic Committee and other

international organisations
Taiwan’s participation at the Olympic Games has been a source of tension.
From the 1950s to the late 1970s, Taiwan competed under various names,
including ‘Formosa-China’ (1956), Taiwan (1960 at the IOC’s insistence, it had
wanted to compete as the Republic of China), and as the Republic of China
(1972). 33 The People’s Republic of China refused to participate alongside them
and boycotted several games, and it was not represented on the International
Olympic Committee (IOC).

Taiwan did not compete in the 1976 Olympic Games after the Canadian
Government refused to give its athletes visas unless it agreed to not compete
using the Republic of China name, reportedly under pressure from the
People’s Republic of China. In 1979 the People’s Republic was admitted to the
IOC. In 1981, the IOC helped create a compromise, with Taiwan agreeing to
participate in future Olympic Games using the name Chinese Taipei, and with
a new anthem, flag and Olympic emblem. 34

In November 2018, in an advisory referendum, the Taiwanese electorate

rejected the option to change the name of its Olympic team from Chinese
Taipei to Taiwan.35 The ‘no’ vote saved the Government from a difficult choice:
although the referendum was advisory the Government said it would honour
the result. However, the International Olympic Committee warned Taiwan

30
“Taiwan Tries New Name in Application for UN Membership”, VOA, 1 November 2009.
31
“Taiwan Joins WTO - 2002-01-01”, Voice of America, 1 January 2002.
32
WTO, ‘WTO accessions’, accessed 29 January 2021.
33
“Why is Taiwan not called Taiwan at the Olympics?”, Hong Kong Free Press, 1 August 2021.
34
As above.
35
“The Latest: Taiwanese reject gay marriage, new Olympic name”, AP News, 25 November 2018.

17 Commons Library Research Briefing, 17 August 2023

Taiwan: History, politics and UK relations

that it could lose its right to compete if it tried to change its name for the
2020 games in Tokyo. 36

Taiwan, under the name of Chinese Taipei, is a member of the Asian

Development Bank and the Asia-Pacific Economic Cooperation regional
forum.

World Health Organization and Covid-19

Taiwan’s status at the World Health Organisation (WHO) attracted attention
at the outbreak of the Covid-19 pandemic in 2020, in part because of claims
by the Taiwanese Government that its early warnings of the spread of the
disease were not shared by the WHO to other countries. 37

Taiwan has observer status at the WHO under the name Chinese Taipei.
However, since 2016 China has blocked Taiwan’s attendance at the World
Health Assembly, the annual decision-making forum of the WHO. 38

According to BBC News, the WHO has said that Taiwan's membership or
attendance is entirely up to the member states, and the WHO's principal legal
office Steven Solomon has clarified that WHO director-generals “only extend
invitations when its clear member states support doing so”. 39 It appears that
China and other countries speaking out against Taiwan’s attendance is
sufficient to prevent their presence.

In July 2020 Lord Ahmad of Wimbledon, the Foreign, Commonwealth and

Development Office Minister for South Asia, told the House of Lords that the
UK was lobbying for Taiwan to be able to attend relevant discussions at
international fora such as the WHO. 40

The US, EU, Japan, and several other nations backed Taiwan's bid to attend
the World Health Assembly as an observer in May 2020. 41 The issue was due to
be put to a vote at Taiwan’s request, but Taiwan withdrew its request, citing
limited time for other countries to discuss containment of the coronavirus
pandemic. 42

G7 support and recent WHO developments

The G7 group of countries, which includes the UK, released a communiqué
after its May 2021 meeting, which included support for “Taiwan’s meaningful

36
“IOC warns Taiwan against name-change that would rile Beijing”, France 24, 19 November 2018.
37
“Taiwan says WHO failed to act on coronavirus transmission warning”, Financial Times, 20 March
2020.
38
“Coronavirus: Why Taiwan won't have a seat at the virus talks”, BBC News, 17 May 2020.
39
As above.
40
HL Deb 14 July 2020 Vol 804 C1530.
41
“Why Taiwan is not recognised on the international stage”, Economist, 17 May 2020.
42
“Taiwan postpones request for WHO observer status vote so members can focus on Covid-19
battle”, Hong Kong Free Press, 18 May 2020.

18 Commons Library Research Briefing, 17 August 2023

 Taiwan: History, politics and UK relations

participation in World Health Organisation forums and the World Health

Assembly”. 43

A spokesperson for the Chinese Foreign Ministry described the G7’s call as
“gross interference in China's sovereignty”. 44

Taiwan once again failed to gain admittance to the WHA that began on 24
May 2021. 45 In a statement, Minister of Foreign Affairs Joseph Wu rebuked the
WHO for its “continued indifference” to the health of the island’s 23.5 million
people and urged the organization to “maintain a professional and neutral
stance” and “reject China’s political interference”. 46

Efforts to include Taiwan in WHO meetings have continued. Most recently in

May 2023, the British Office in Taipei, along with its US, Australian, Canadian,
Czech, German, Japanese and Lithuanian counterparts, released a statement
supporting “Taiwan’s meaningful participation in the work of the World
Health Organization and Taiwan’s participation as an observer in the World
Health Assembly”. 47 The WHA rejected Taiwan’s request once again, with
China and Pakistan speaking against the bid. 48

2.3 UK policy

The UK was the first Western power to recognise the People’s Republic of
China, doing so in January 1950, and sending a chargé d'affaires to Beijing.
The UK broke off its recognition of the Republic of China at the same time. 49

The People’s Republic did not reciprocate diplomatic relations with the UK,
demanding the UK support its bid to take up the UN seat occupied by the
Republic of China at that time.

The UK and the People’s Republic of China finally exchanged ambassadors in

1972, and the UK closed its consulate in Taiwan that same year. As part of
establishing formal diplomatic relations, the UK and the People’s Republic of
China (PRC) signed an agreement that “acknowledged the position of the

43
FCDO, Policy Paper: G7 Foreign and Development Ministers’ Meeting: Communiqué, London, 5 May
2021, 5 May 2021.
44
PRC Ministry of Foreign Affairs, ‘Foreign Ministry Spokesperson Wang Wenbin's Regular Press
Conference on May 6, 2021’, accessed 3 August 2023.
45
“Taiwan, excluded from a world health forum, blames Chinese interference”, New York Times, 24
May 2021.
46
“Taiwan, excluded from a world health forum, blames Chinese interference”, New York Times, 24
May 2021
47
British Office Taipei, Support for Taiwan’s meaningful engagement with the WHO, 18 May 2023.
48
“Outcry as World Health Assembly locks out Taiwan under pressure from China”, The Guardian, 23
May 2023.
49
“Britain recognises Chinese communists”, The Times, 7 January 1950.

19 Commons Library Research Briefing, 17 August 2023

Taiwan: History, politics and UK relations

government of the PRC that Taiwan was a province of China and recognised
the PRC Government as the sole legal government of China”. 50

In response to a 2016 petition calling for the UK Government to recognise

Taiwan as a country, the Government responded that the dispute between
Taiwan and the People’s Republic of China should be resolved “through
dialogue, in line with the views of the people on both sides of the Taiwan
Strait”. 51

The “long-standing” UK policy was confirmed in a Lords debate on 14 July

2020, with Lord Ahmad saying on behalf of the Government:

The United Kingdom’s long-standing policy on Taiwan has not changed. We

have no diplomatic relations with Taiwan, but a strong unofficial relationship
based on dynamic commercial, educational and cultural ties. We regularly
lobby in favour of Taiwan’s participation in international organisations where
statehood is not a prerequisite, and we make clear our concerns about any
activity that risks destabilising the cross-strait status quo. We have no plans to
recognise Taiwan as a state. 52

50
Foreign Affairs Select Committee ‘East Asia’, 2006 (HC 860-I, para 174-5).
51
UK Parliament Petitions: Recognise Taiwan as a country, Government responded on 4 February 2016
closed 18 July 2016. Accessed 3 August 2023.
52
HL Deb 14 July 2020 [Taiwan].

20 Commons Library Research Briefing, 17 August 2023

 Taiwan: History, politics and UK relations

3 Taiwan’s relations with the United

Kingdom

3.1 Diplomatic relations

As explained in section 2.2, the UK, like most other countries, does not
recognise Taiwan as a state, nor maintain formal diplomatic relations with
the island.

The UK’s diplomatic presence on the island is maintained through an outpost

called the British Office Taipei. According to the UK Government website, it
“promotes trade, investment, innovation, culture, education and other links
between the UK and Taiwan”, and “provide[s] practical assistance to British
nationals in Taiwan”. 53

In January 2020, as Foreign Secretary, Dominic Raab, released a statement

congratulating Tsai Ing-wen on her re-election as President. In the statement
Mr Raab expressed his hope that “the 2 sides of the Taiwan Strait will renew
dialogue to resolve differences and build constructive relations across the
Strait”. 54

The UK has expressed its concern over the years at Taiwan’s retention of the
death penalty. In 2018 the Foreign Office supported a trip by Keir Starmer,
who was then the shadow Brexit Secretary and long-term campaigner on the
subject, to lobby for the abolition of capital punishment on the island. 55

The subject on which the UK and Taiwan most regularly engage is trade and
the two sides hold annual rounds of trade talks. For more on trade relations
and trade statistics see section 3.3.

53
GOV.UK, Taiwan and the UK, accessed 3 August 2023.
54
FCDO, Taiwan elections, January 2020: Foreign Secretary's statement, 11 January 2020, accessed 3
August 2023.
55
“Keir Starmer visits Taiwan to lobby against death penalty”, The Guardian, 29 September 2018.

21 Commons Library Research Briefing, 17 August 2023

 Taiwan: History, politics and UK relations

3.2 Defence relations

The UK has no official defence ties with Taiwan. Asked over the years if the UK
would consider lending military support to Taiwan, successive governments
have repeated that the UK’s policy is for a peaceful resolution between China
and Taiwan. 56

Relations between the UK and Taiwan have strengthened over the last few
years, and there is now a greater focus on the UK’s foreign and defence policy
towards the island and the surrounding region.

Part of the reason is the UK’s foreign policy aim to “tilt to the Indo-Pacific” set
out in the 2021 Integrated Review of Security, Defence, Development and
Foreign Policy. 57 Relations between the UK and the People's Republic of China
have also become more tense. 58

The 2021 Integrated Review proposed the UK should “continue to pursue a

positive trade and investment relationship with China”, 59 but also described
China as a “systemic competitor”, 60 and that “China’s military modernisation
and growing international assertiveness within the Indo-Pacific region and
beyond will pose an increasing risk to UK interests”. 61

In the 2023 Refresh of the 2021 Integrated Review the UK Government stated it
supports “stability in the Taiwan Strait”, and opposes “any unilateral change
in the status quo, and in the East and South China Sea”, saying “We will
support all parties to work together to ensure that heightened tensions do not
lead to escalation”. 62

UK naval operations in the South China Sea

The UK has increased its naval exercises in the South China Sea in recent
years. HMS Albion conducted a US-style freedom of navigation operation by
the Paracel islands in August 2018, 63 and in early 2019 the Royal

56
See for example, HL Deb 17 September 2020 [Taiwan]. And PQ 139489 [Taiwan: Military Alliances], 9
May 2018.
57
Commons Library research briefing CBP-9217, Integrated Review 2021: The Defence tilt to the Indo-
Pacific.
58
Commons Library debate pack, UK relations with China during the presidency of Xi Jinping, 14
March 2023.
59
Cabinet Office, Global Britain in a Competitive Age, the Integrated Review of Security, Defence,
Development and Foreign Policy, 16 March 2021, P22.
60
As above, P26
61
As above, P29.
62
Cabinet Office, Integrated Review Refresh 2023: Responding to a more contested and volatile world,
13 March 2023, P43.
63
“British navy's HMS Albion warned over South China Sea 'provocation'”, BBC News, 6 September
2018.

22 Commons Library Research Briefing, 17 August 2023

 Taiwan: History, politics and UK relations

Navy conducted two joint military exercises with the US Navy in the South
China Sea.64

At the end of September 2021, the UK sent a warship, HMS Richmond, through
the Taiwan strait for the first time since 2008 (HMS Enterprise, a survey
vessel, had navigated the strait in 2019). 65 HMS Richmond, a frigate, deployed
with the Royal Navy’s aircraft carrier strike group, and sailed through the
strait on a trip from Japan to Vietnam. 66

The Chinese military followed the vessel and were reported to have warned it
away. The People’s Liberation Army also condemned the move saying it was
behaviour that “harboured evil intentions”. 67

Some commentators have questioned the need for the Royal Navy to conduct
such exercises, saying the UK risks becoming involved in a military conflict in
the Taiwan Strait. 68

In September 2020, the Minister for Asia set out the UK Government’s
approach to freedom of navigation in the South China Sea in a Commons
adjournment debate.69 A document explaining the UK Government’s position
on legal issues arising in the South China Sea was deposited in the Commons
Library on the same day.70 For more information see the Library briefing
Integrated Review 2021: The Defence tilt to the Indo-Pacific.

3.3 UK-Taiwan trade statistics and relations

Trade statistics
Below are some headline figures on UK-Taiwan trade. In 2022:

• The UK exported £3.9 billion of goods and services to Taiwan and

imported £4.7 billion, resulting in a trade deficit of £0.9 billion.

• The UK recorded a trade surplus in services with Taiwan of £1.2 billion;

this was more than outweighed by a trade deficit in goods of £2.0 billion.

• UK exports to Taiwan were more geared towards services than goods –

services accounted for 55% of UK exports to Taiwan.

64
“Royal Navy frigate joins US Navy oiler for South China Sea drills”, Naval Today, 20 February 2019.
65
“UK sends warship through Taiwan strait for first time in more than a decade”, The Guardian, 28
September 2021.
66
Royal Navy, HMS Richmond sailors reflect on Carrier Strike deployment, 23 December 2021.
67
“China accuses British navy of 'evil intentions' as UK warship sails through Taiwan Strait”, Sky News,
28 September 2021.
68
“Is Britain heading for war over Taiwan?”, The Spectator, Francis Pike, 20 March 2021.
69
HC Deb 3 September 2020 vol 679 cc 342-3..
70
DEP2020-0516 (UK government’s position on legal issues arising in the South China Sea).

23 Commons Library Research Briefing, 17 August 2023

Taiwan: History, politics and UK relations

• UK imports from Taiwan were more geared towards goods – goods

accounted for 80% of UK imports from Taiwan.

• Taiwan was the UK’s 33rd largest export market, accounting for 0.5% of
UK exports of goods and services.

• Taiwan was the UK’s 34th largest source of imports, accounting for 0.5%
of UK imports of goods and services.

• Taiwan was the UK’s 10th largest export market in Asia, accounting for
2.2% of the UK’s exports to Asia.

• Taiwan was the UK’s 10th largest source of imports from Asia, accounting
for 2.2% of UK imports from Asia.

UK trade in goods and services, 2022

Taiwan

Exports Imports Balance

£ billions % total £ billions % total £ billions
Goods 1.7 0.4% 3.8 0.6% -2.0
Services 2.1 0.5% 0.9 0.4% 1.2

Total 3.9 0.5% 4.7 0.5% -0.9

Source: Office for National Statistics, UK total trade: all countries, seasonally adjusted

Trade relations
The UK and Taiwanese governments regularly engage on trade, with both
governments holding an annual round of trade discussions.

The 25th annual UK-Taiwan Trade Talks took place in Taipei in November 2022,
these were the first in-person talks since the Covid-19 pandemic.

A Department for International Trade press release described these talks as a

“clear signal of the UK’s commitment to boosting UK-Taiwan trade ties”,
stating that topics of discussion included “tackling barriers to trade in sectors
like fintech, food and drink and pharma, aimed at helping more UK firms
export and invest in Taiwan”, as well as discussions on “areas of mutual
interest such as renewables and science and innovation”. 71

The UK will host the 26th annual trade talks later in 2023. In an introductory
call to discuss the summit in July, UK Trade Minister Nigel Huddleston is said
to have endorsed “the start of official-level talks on an Enhanced Trade
Partnership (ETP), which will be underpinned by non-legally binding

71
Department for International Trade, UK strengthens Taiwan trade ties as Minister visits Taipei, 7
November 2022.

24 Commons Library Research Briefing, 17 August 2023

Taiwan: History, politics and UK relations

Memoranda of Understanding in key areas such as two-way investment,

digital trade, and energy & net-zero”. 72

A spokesperson at the Chinese Embassy in London released a statement in

response to the announcement of the upcoming UK-Taiwan trade talks and
work on the ETP, in which they lodged a strong protest at these interactions:

China strongly opposes official interactions of any form between China’s

Taiwan region and countries that have diplomatic relations with China. The
UK's relevant action violated the one-China principle, and its own commitment
to maintaining only unofficial relations with Taiwan, sent a seriously wrong
signal to the "Taiwan independence" separatist forces, and grossly interfered
in China's internal affairs. We are strongly dissatisfied with and firmly oppose
this, and have lodged stern representations with the UK side.

[…] We urge the UK to stop upgrading substantive relations with Taiwan in the
name of strengthening trade relationship, and stop any move that violates the
one-China principle. Any actions that harm China's interests will be met with
resolute countermeasures. 73

Comprehensive and Progressive Agreement for Trans-Pacific Partnership

The Government announced on 31 March 2023 that the UK would be joining the
Comprehensive and Progressive Agreement for Trans-Pacific Partnership
(CPTPP).74

The CPTPP is a free trade agreement between 11 countries in the Asia-Pacific

region (Australia, Brunei Darussalam, Canada, Chile, Japan, Malaysia,
Mexico, New Zealand, Peru, Singapore and Vietnam). Joining the CPTPP is
part of the Government’s policy, announced in the March 2021 Integrated
Review, of pursuing deeper engagement with the Indo-Pacific region. 75

The UK will be the first new member since the bloc was established in 2018
and the first European member.

Taiwan applied to join the CPTPP in September 2021. However, its application
was complicated by the fact that the week before China announced it was
applying to join the partnership. 76

72
Department for Business and Trade, UK to host 26th annual Taiwan talks to continue to strengthen
trade relationship, 26 July 2023.
73
Embassy of the People’s Republic of China to the UK, Embassy Spokesperson on an “Enhanced Trade
Partnership” Between the UK and Taiwan, 26 July 2023.
74
Prime Minister’s Office 10 Downing St, UK strikes biggest trade deal since Brexit to join major free
trade bloc in Indo-Pacific, 31 March 2023.
75
HM Government, The Integrated Review 2021, 16 March 2021 and HM Government, Integrated Review
Refresh 2023, 13 March 2023.
76
“China applies to join Pacific trade pact to boost economic clout”, Reuters, 17 September 2021.

25 Commons Library Research Briefing, 17 August 2023

Taiwan: History, politics and UK relations

Taiwan had been signalling for some time it wanted to join CPTPP, but China’s
announcement spurred its own official announcement. Some have speculated
that China’s announcement was in part a bid to block Taiwan’s accession. 77

In March 2023, Taiwanese President Tsai Ing-wen called on the UK to support

Taiwan’s application for CPTPP membership, saying this “would do much to
allow Taiwan and Britain to continue deepening their partnership”. 78

Asked in 2021, before the UK became a CPTPP member, whether the UK

supported Taiwan joining the agreement, the then Trade Minister Greg Hands,
did not give a direct response, observing:

Taiwan is a subject close to my heart, and we know that it is an important and

growing trading partner for the UK. It is a highly valued member of the WTO as
well. Future membership of CPTPP is a matter for the members at that time,
but I note that Taiwan is looking to align itself to CPTPP’s high standards and is
continuing its long-standing commitment to rules-based trade and the global
trading system. We expect CPTPP to grow in size, and future members will be a
matter for future consideration. 79

77
Asia Pacific Foundation of Canada, The CPTPP Bids of China and Taiwan: Issues and Implications, 15
November 2022.
78
“Taiwan calls on Britain to support its bid for Pacific trade pact”, Reuters, 20 March 2023
79
HC Deb 15 July 2021 vol 699 c521.

26 Commons Library Research Briefing, 17 August 2023

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