China postponed all meetings with the United States on human rights, security issues, including military-to-military ties, and China's membership in the World Trade Organization.

Indeed military-to-military ties have lagged behind improvements in the wider bilateral relationship, which was symbolised by the visit of Chinese President Hu Jintao to Washington in January of this year.

The communiqué said the two sides would work to open China's market more broadly to Taiwanese goods, sign a formal peace agreement, establish military-to-military ties and allow Taiwan to join some international bodies, like the World Health Organization.

China's recent test of an antisatellite weapon sent a confusing message to the world about its military intentions, but the United States and China are slowly building stronger military-to-military ties, the top-ranking United States military officer said Friday.

"I think the Chinese side is eager to have normal military-to-military ties with the American Army," he said.

History shows that when military-to-military ties dominate the relationship, as they did for much of the cold war, generals in Latin America feel empowered to act in any way they want so long as they guarantee a semblance of stability.

But even before the collision, the Bush administration was taking a more skeptical approach toward China, though it had maintained military-to-military ties.

While the Clinton administration carefully cultivated military-to-military ties with the Chinese and for a time called Beijing a "strategic partner," a phrase that was later dropped, the Bush administration has said that it will treat China more as a competitor.

Mr. Chi's trip was originally scheduled as a way to reciprocate for Mr. Perry's visit to China in 1994 and to deepen military-to-military ties between the two countries.

The United States, whose past relations with Indonesia have revolved too much around military-to-military ties, needs to provide aid to civilian groups that want to play an active part in civic life.