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This blog post was first published by the Australian Strategic Policy Institute's The Strategist analysis and commentary site.


The Quad is stronger than ever. The informal ‘minilateral’ grouping of Australia, India, Japan and the United States has in the past year held its first stand-alone ministerial meeting and its first leaders’ summit, and launched an ambitious project to deliver Covid-19 vaccines. This ‘golden age’ of the Quad is a product of newfound Indian enthusiasm for the grouping, in turn, spurred by the military crisis in Ladakh, where India faces ongoing Chinese troop incursions across the two countries’ disputed border.

But the Quad is not bulletproof. Some experts have suggested that the economic and diplomatic effects of the devastating second wave of the pandemic in India will preoccupy the Indian government, sapping the Quad of capacity for any new initiatives. Others counter that India remains committed to competition with China—which is what really matters for the Quad—although its partners always expected ‘two steps forward, one step back’ from India.


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Related: On the Conversation Six podcast, Tarapore discusses the policy paper on which this blog post is based with Jawaharlal Nehru University Professor of International Politics Rajesh Rajagopalan. Listen:


The pandemic may well prove to be a hiccup in the Quad’s evolution, but a potentially much larger disruption may come from the ongoing Ladakh crisis itself. As I argue in a new ASPI Strategic Insights paper, the crisis has greatly increased the risk of a border war between India and China, which would present a defining test of the Quad. A possible war could either strengthen or enervate the Quad—depending on how India and its partners, including Australia, act now to shape the strategic environment.

Risk is a function of likelihood and consequence. The likelihood of war on the India–China border is still low—both countries would prefer to avoid it—but has risen since the crisis began. Both countries have greatly expanded their military deployments on the border and backed them with new permanent infrastructure to resupply and reinforce them. China has proved its revisionist intent with large and costly military incursions, although its specific objectives and plans remain unknown. And the interaction of both countries’ military strategies and doctrines would, on the threshold of conflict, promote escalation.

The consequences of a possible conflict would be dire for both belligerents and for the region. China — assuming it is the provocateur of conflict—would likely face some political rebuke from states that consider themselves its competitors, but it will work strenuously to reduce those costs, and would likely have priced them in to its calculations of whether to fight. India will suffer high tactical costs on the border, and may also suffer wider harm if China uses coercive cyberattacks against strategic or dual-use targets.

In a costly war, the repercussions may spill over to damage India’s recently developing strategic partnerships, especially with the United States and Australia. Despite generally favorable views of the US, the Indian strategic elite still harbors some latent suspicions. This was highlighted in two episodes in April 2021, when the US Navy conducted a freedom of navigation patrol through the Indian exclusive economic zone, and when the US was slow in delivering Covid-19 vaccine raw materials and other relief. Both instances quickly receded from the Indian public imagination—thanks to quick correctives from Washington—but they did reveal that, under some conditions, Indian perceptions of its new partnerships can be quickly colored by distrust.

A China–India border war may create exactly those conditions. There is a chance that conflict may result in a redoubled Indian commitment to the Quad, if New Delhi judges that it has no option but to seek more external assistance. Conversely, unless a conflict is managed well by India and its partners, it is more likely to result in Indian disaffection with the Quad. India deepened Quad cooperation during the Ladakh crisis partly as a deterrent signal to China, and partly because the Quad is still full of promise. However, after a conflict—when China hasn’t been deterred and has probably imposed significant costs on India—the Quad’s utility would have been tested, and probably not ameliorated India’s wartime disadvantage.

The task before Quad governments is to be sensitized to this risk and implement mitigation strategies before a possible conflict, to buttress the coalition in advance. As I outline in the ASPI paper, they could do this at three levels. First, they could offer operational support—such as intelligence or resupply of key equipment, as the US already has done in the Ladakh crisis—although Quad partners’ role here would be limited. Second, they could provide support in other theatres or domains—with a naval show of force, for example, although cyber operations would probably be more meaningful in deterring conflict or dampening its costs. Third, they could provide political and diplomatic support — signaling to Beijing that a conflict would harm its regional political standing.

For Quad members, the main goal would be to deter conflict in the first place, and, failing that, to preserve the long-term strategic partnership with India for the sake of maintaining as powerful and energetic a coalition as possible to counterbalance China in the long term.

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The Ladakh crisis between China and India seems to have settled into a stalemate, but its trajectory could again turn suddenly. If it flares into a limited conventional war, one of its incidental victims could be the Quad.

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The Ladakh crisis between China and India seems to have settled into a stalemate, marked by somewhat reduced tactical tensions and continuing fruitless talks on disengagement—but its trajectory could again turn suddenly, even flaring into a limited conventional war. Despite a limited disengagement, both sides continue to make military preparations near the Line of Actual Control (LAC) to increase their readiness for potential conflict. While China proved its revisionist intent with its 2020 incursions, its specific goals and plans remain opaque. The broader political context is marked by distrust and hostility, and bilateral relations are at their lowest ebb in decades. War remains unlikely—both sides can ill-afford the distraction from higher national priorities and have demonstrated a recent keenness to step back from the brink. But, with growing capabilities and unclear intent, and with military operations no longer impaired by winter, the Ladakh crisis may still escalate to conflict.

The crisis has been full of surprises. Despite observing major military maneuvers in China, India didn’t anticipate the multiple incursions across the LAC in May 2020. For weeks thereafter, the Indian Army leadership insisted the incursions were nothing out of the ordinary. After both sides agreed to an early disengagement plan, the crisis took a shocking turn with a deadly skirmish in June — the first loss of life on the LAC in 45 years. India also mustered its own surprises, deploying troops to occupy tactically valuable heights in late August, to gain some bargaining leverage. And the crisis also abated with a surprise, with the sudden announcement of disengagement from heavily militarised stand-off sites around Pangong Tso Lake in February 2021.

Future surprises may yet occur. This paper argues that the risk of China–India conflict is significant because, even if its likelihood is low, its consequences may be considerable. A limited conventional war would be likely to impose significant costs on India, but, depending on the reactions of its partners, it may also reinforce latent Indian suspicions over the utility and reliability of its strategic partnerships. In that way, even a localized limited war on the LAC may have far-reaching implications, if it incidentally drives a wedge between India and its partners in the Quad. Mitigating that risk will require sound policy settings and astute diplomatic and public messaging from Canberra, Washington, Tokyo, and other like-minded capitals.

The remainder of this paper is in three parts: first, why a border war is plausible; second, what costs it would impose on India and how it might stir distrust of India’s Quad partners; and, finally, a framework to mitigate those risks.

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In collaboration with Global:SF and the State of California Governor’s Office of Business and Economic Development, the China Program at Shorenstein APARC presented session five of the New Economy Conference, "Navigating Chinese Investment, Trade, and Technology," on May 19. The program featured distinguished speakers Ambassador Craig Allen, President of the US-China Business Council; David K. Cheng, Chair and Managing Partner of China & Asia Pacific Practice at Nixon Peabody LLPJames Green, Senior Research Fellow at the Initiative for U.S.-China Dialogue on Global Issues at Georgetown University; and Anja Manuel, Co-Founder and Principal of Rice, Hadley, Gates & Manuel LLC. The session was opened by Darlene Chiu Bryant, Executive Director of GlobalSF, and moderated by Professor Jean Oi, William Haas Professor of Chinese Politics and director of the APARC China Program.

U.S.-China economic relations have grown increasingly fraught and competitive. Even amidst intensifying tensions, however, our two major economies remain intertwined. While keeping alert to national security concerns, the economic strength of the United States will depend on brokering a productive competition with China, the world’s fastest growing economy. Precipitous decoupling of trade, investment, and human talent flows between the two nations will inflict unnecessary harm to U.S. economic interests--and those of California.  

Chinese trade and investments into California have grown exponentially over the last decade. But they have come under increasing pressure following geopolitical and economic tensions between the two nations, particularly in the science and technology sectors. Ambassador Craig Allen, David Cheng, James Green, and Anja Manuel explored the role of Chinese economic activity in California in the context of the greater US-Chinese relationship. Watch now: 

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Ambassador Craig Allen, David Cheng, James Green, and Anja Manuel explore the role of Chinese economic activity in California in the context of the greater US-Chinese relationship.

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In May 2020, China launched several near-simultaneous incursions across the Line of Actual Control (LAC) in Ladakh, into territory hitherto controlled by India. Both sides reinforced their positions with tens of thousands of troops, engaged in a deadly skirmish, and reportedly came close to war. An agreement to disengage troops was announced in February 2021, but implementation has been halting. Regardless of how disengagement progresses, the crisis poses significant challenges for India’s long-term strategic competition with China.

As a result of the Ladakh crisis, India faces a new strategic reality in which China is a clear and abiding adversary. For India, the political relationship is now defined by hostility and distrust, and the LAC will remain more heavily militarised and violence-prone. Given this new reality, India is likely to further defer military modernisation and maritime expansion into the Indian Ocean. In the face of unremitting Chinese naval expansion, India risks losing significant political and military leverage in the Indian Ocean. At the same time, China appears to have escaped significant harm. Its better-resourced military could better absorb the material costs of the mobilisation. It may have been more concerned by the prospect of an increasingly hostile India, but the disengagement agreement has limited even those modest political costs.

The central policy challenge for India is balancing the heightened Chinese military threat on the northern border with the rapidly growing Chinese military presence in the Indian Ocean. It can manage this challenge by focusing on military strategies of denial rather than punishment, focusing on imposing political rather than material costs on China, and accepting more risk at the LAC in exchange for long-term leverage in the Indian Ocean region. How India responds will shape not only its strategic competition with China, but also the interests of likeminded partners including Australia, which depend on an increasingly capable and active India.
 

Key Findings

  • The still-unresolved Ladakh crisis has created a new strategic reality for India, marked by renewed political hostility with China, and an increased militarisation of the Line of Actual Control.
  • This new strategic reality imposes unequal costs on India and China. India is likely to defer much-needed military modernisation and maritime expansion into the Indian Ocean — which would impair its ability to compete strategically with China.
  • In contrast, China incurred only marginal material costs; it was probably more concerned with the prospect of continued deterioration in its relationship with India. Even that cost was more threatened rather than realised, and largely reduced when the disengagement plan was agreed.

 

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Space strategy is central to great-power competition and China believes it needs to excel and compete effectively in space, whether in civilian, commercial, or military usage, says Center Fellow Oriana Skylar Mastro on Space Strategy, a podcast from the American Foreign Policy Council (AFPC). Listen below:

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Mastro joined podcast host Peter Garretson, Senior Fellow in Defense Studies at AFPC, to examine how China views space and why space is key to any military conflict, particularly across the Taiwan strait.

The U.S. military is far superior to the Chinese, says Mastro, yet one main reason China might prevail in a conflict over Taiwan is that it might achieve its goals before the United States can amass enough forces to respond. “Whether the United States can do this is largely dependent on space."

During this conversation, Mastro discusses China's approach to negotiation, deterrence, diplomacy, and inducements; the potential for misunderstanding and escalation in targeting U.S. space assets; and the considerations that impact U.S.-China space cooperation. She also explains how freedom in space is critical to avoiding foreign dependence and why the United States must build a resilient military space architecture and not surrender global leadership in pursuing aspirational and inspirational space goals.

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This essay was originally published in Foreign Affairs magazine.

For more than 70 years, China and Taiwan have avoided coming to blows. The two entities have been separated since 1949, when the Chinese Civil War, which had begun in 1927, ended with the Communists’ victory and the Nationalists’ retreat to Taiwan. Ever since, the strait separating Taiwan from mainland China—81 miles wide at its narrowest—has been the site of habitual crises and everlasting tensions, but never outright war. For the past decade and a half, cross-strait relations have been relatively stable. In the hopes of persuading the Taiwanese people of the benefits to be gained through a long-overdue unification, China largely pursued its long-standing policy of “peaceful reunification,” enhancing its economic, cultural, and social ties with the island.

To help the people of Taiwan see the light, Beijing sought to isolate Taipei internationally, offering economic inducements to the island’s allies if they agreed to abandon Taipei for Beijing. It also used its growing economic leverage to weaken Taipei’s position in international organizations and to ensure that countries, corporations, universities, and individuals—everyone, everywhere, really—adhered to its understanding of the “one China” policy. As sharp as these tactics were, they stopped well short of military action. And although Chinese officials always maintained that they had a right to use force, that option seemed off the table. 

In recent months, however, there have been disturbing signals that Beijing is reconsidering its peaceful approach and contemplating armed unification. Chinese President Xi Jinping has made clear his ambition to resolve the Taiwan issue, grown markedly more aggressive on issues of sovereignty, and ordered the Chinese military to increase its activity near the island. He has also fanned the flames of Chinese nationalism and allowed discussion of a forceful takeover of Taiwan to creep into the mainstream of the Chinese Communist Party (CCP). The palpable shift in Beijing’s thinking has been made possible by a decades-long military modernization effort, accelerated by Xi, aimed at allowing China to force Taiwan back into the fold. Chinese forces plan to prevail even if the United States, which has armed Taiwan but left open the question of whether it would defend it against an attack, intervenes militarily. Whereas Chinese leaders used to view a military campaign to take the island as a fantasy, now they consider it a real possibility.


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U.S. policymakers may hope that Beijing will balk at the potential costs of such aggression, but there are many reasons to think it might not. Support for armed unification among the Chinese public and the military establishment is growing. Concern for international norms is subsiding. Many in Beijing also doubt that the United States has the military power to stop China from taking Taiwan—or the international clout to rally an effective coalition against China in the wake of Donald Trump’s presidency. Although a Chinese invasion of Taiwan may not be imminent, for the first time in three decades, it is time to take seriously the possibility that China could soon use force to end its almost century-long civil war. 

“No Option Is Excluded”

Those who doubt the immediacy of the threat to Taiwan argue that Xi has not publicly declared a timeline for unification—and may not even have a specific one in mind. Since 1979, when the United States stopped recognizing Taiwan, China’s policy has been, in the words of John Culver, a retired U.S. intelligence officer and Asia analyst, “to preserve the possibility of political unification at some undefined point in the future.” Implied in this formulation is that China can live with the status quo—a de facto, but not de jure, independent Taiwan—in perpetuity. 

But although Xi may not have sent out a save-the-date card, he has clearly indicated that he feels differently about the status quo than his predecessors did. He has publicly called for progress toward unification, staking his legitimacy on movement in that direction. In 2017, for instance, he announced that “complete national reunification is an inevitable requirement for realizing the great rejuvenation of the Chinese nation,” thus tying Taiwan’s future to his primary political platform. Two years later, he stated explicitly that unification is a requirement for achieving the so-called Chinese dream. 

Xi has also made clear that he is more willing than his predecessors to use force. In a major speech in January 2019, Xi called the current political arrangement “the root cause of cross-strait instability” and said that it “cannot go on generation to generation.” Chinese scholars and strategists I have spoken to in Beijing say that although there is no explicit timeline, Xi wants unification with Taiwan to be part of his personal legacy. When asked about a possible timeline by an Associated Press journalist in April, Le Yucheng, China’s vice foreign minister, did not attempt to assuage concerns of an imminent invasion or deny the shift in mood in Beijing. Instead, he took the opportunity to reiterate that national unification “will not be stopped by anyone or any force” and that while China will strive for peaceful unification, it does not “pledge to give up other options. No option is excluded.”

Chinese leaders, including Xi, regularly extol the virtues of integration and cooperation with Taiwan, but the prospects for peaceful unification have been dwindling for years. Fewer and fewer Taiwanese see themselves as Chinese or desire to be a part of mainland China. The reelection in January 2020 of Taiwanese President Tsai Ing-wen, who favors pursuing more cautious ties with China, reinforced Beijing’s fears that the people of Taiwan will never willingly come back to the motherland. The death knell for peaceful unification came in June 2020, however, when China exerted sweeping new powers over Hong Kong through a new national security law. Hong Kong’s “one country, two systems” formula was supposed to provide an attractive template for peaceful unification, but Beijing’s crackdown there demonstrated clearly why the Taiwanese have been right to reject such an arrangement. 

Many in Beijing doubt that the United States has the military power to stop China from taking Taiwan.

Chinese leaders will continue to pay lip service to peaceful unification until the day the war breaks out, but their actions increasingly suggest that they have something else in mind. As tensions with the United States have heated up, China has accelerated its military operations in the vicinity of Taiwan, conducting 380 incursions into the island’s air defense identification zone in 2020 alone. In April of this year, China sent its largest-ever fleet, 25 fighters and bombers, into Taiwan’s air defense identification zone. Clearly, Xi is no longer trying to avoid escalation at all costs now that his military is capable of contesting the U.S. military presence in the region. Long gone are the days of the 1996 crisis over Taiwan, when the United States dispatched two aircraft carrier battle groups to sail near the strait and China backed off. Beijing did not like being deterred back then, and it spent the next 25 years modernizing its military so that it would not be so next time.  

Much of that modernization, including updates to hardware, organization, force structure, and training, was designed to enable the People’s Liberation Army to invade and occupy Taiwan. Xi expanded the military’s capabilities further, undertaking the most ambitious restructuring of the PLA since its founding, aimed specifically at enabling Chinese forces to conduct joint operations in which the air force, the navy, the army, and the strategic rocket force fight seamlessly together, whether during an amphibious landing, a blockade, or a missile attack—exactly the kinds of operations needed for armed unification. Xi urgently pushed these risky reforms, many unpopular with the military, to ensure that the PLA could fight and win wars by 2020.

The voices in Beijing arguing that it is time to use these newfound military capabilities against Taiwan have grown louder, a telling development in an era of greater censorship. Several retired military officers have argued publicly that the longer China waits, the harder it will be to take control of Taiwan. Articles in state-run news outlets and on popular websites have likewise urged China to act swiftly. And if public opinion polls are to be believed, the Chinese people agree that the time has come to resolve the Taiwan issue once and for all. According to a survey by the state-run Global Times, 70 percent of mainlanders strongly support using force to unify Taiwan with the mainland, and 37 percent think it would be best if the war occurred in three to five years. 

The Chinese analysts and officials I have spoken to have revealed similar sentiments. Even moderate voices have admitted that not only are calls for armed unification proliferating within the CCP but also they themselves have recommended military action to senior Chinese leadership. Others in Beijing dismiss concerns about a Chinese invasion as overblown, but in the same breath, they acknowledge that Xi is surrounded by military advisers who tell him with confidence that China can now regain Taiwan by force at an acceptable cost. 

Battle Ready

Unless the United States or Taiwan moves first to alter the status quo, Xi will likely consider initiating armed unification only if he is confident that his military can successfully gain control of the island. Can it? 

The answer is a matter of debate, and it depends on what it would take to compel Taiwan’s capitulation. Beijing is preparing for four main campaigns that its military planners believe could be necessary to take control of the island. The first consists of joint PLA missile and airstrikes to disarm Taiwanese targets—initially military and government, then civilian—and thereby force Taipei’s submission to Chinese demands. The second is a blockade operation in which China would attempt to cut the island off from the outside world with everything from naval raids to cyberattacks. The third involves missile and airstrikes against U.S. forces deployed nearby, with the aim of making it difficult for the United States to come to Taiwan’s aid in the initial stages of the conflict. The fourth and final campaign is an island landing effort in which China would launch an amphibious assault on Taiwan—perhaps taking its offshore islands first as part of a phased invasion or carpet bombing them as the navy, the army, and the air force focused on Taiwan proper. 

Among defense experts, there is little debate about China’s ability to pull off the first three of these campaigns—the joint strike, the blockade, and the counterintervention mission. Neither U.S. efforts to make its regional bases more resilient nor Taiwanese missile defense systems are any match for China’s ballistic and cruise missiles, which are the most advanced in the world. China could quickly destroy Taiwan’s key infrastructure, block its oil imports, and cut off its Internet access—and sustain such a blockade indefinitely. According to Lonnie Henley, a retired U.S. intelligence officer and China specialist, “U.S. forces could probably push through a trickle of relief supplies, but not much more.” And because China has such a sophisticated air defense system, the United States would have little hope of regaining air or naval superiority by attacking Chinese missile transporters, fighters, or ships. 

But China’s fourth and final campaign—an amphibious assault on the island itself—is far from guaranteed to succeed. According to a 2020 U.S. Department of Defense report, “China continues to build capabilities that would contribute to a full-scale invasion,” but “an attempt to invade Taiwan would likely strain China’s armed forces and invite international intervention.” The then commander of U.S. Indo-Pacific Command, Philip Davidson, said in March that China will have the ability to successfully invade Taiwan in six years. Other observers think it will take longer, perhaps until around 2030 or 2035. 

The voices in Beijing arguing that it is time to use newfound military capabilities against Taiwan have grown louder.

What everyone agrees is that China has made significant strides in its ability to conduct joint operations in recent years and that the United States needs adequate warning to mount a successful defense. As Beijing hones its spoofing and jamming technologies, it may be able to scramble U.S. early warning systems and thereby keep U.S. forces in the dark in the early hours of an attack. Xi’s military reforms have improved China’s cyberwarfare and electronic warfare capabilities, which could be trained on civilian, as well as military, targets. As Dan Coats, then the U.S. director of national intelligence, testified in 2019, Beijing is capable of offensive cyberattacks against the United States that would cause “localized, temporary disruptive effects on critical infrastructure.” China’s offensive weaponry, including ballistic and cruise missiles, could also destroy U.S. bases in the western Pacific in a matter of days.

In light of these enhanced capabilities, many U.S. experts worry that China could take control of Taiwan before the United States even had a chance to react. Recent war games conducted by the Pentagon and the RAND Corporation have shown that a military clash between the United States and China over Taiwan would likely result in a U.S. defeat, with China completing an all-out invasion in just days or weeks.

Ultimately, on the question of whether China will use force, Chinese leaders’ perceptions of their chances of victory will matter more than their actual chances of victory. For that reason, it is bad news that Chinese analysts and officials increasingly express confidence that the PLA is well prepared for a military confrontation with the United States over Taiwan. Although Chinese strategists acknowledge the United States’ general military superiority, many have come to believe that because China is closer to Taiwan and cares about it more, the local balance of power tips in Beijing’s favor. 

As U.S.-Chinese tensions have risen, China’s state-sponsored media outlets have grown more vocal in their praise for the country’s military capabilities. In April, the Global Times described an unnamed military expert saying that “the PLA exercises are not only warnings, but also show real capabilities and pragmatically practicing reunifying the island if it comes to that.” If China chooses to invade, the analyst added, the Taiwanese military “won’t stand a chance.”

Go Fast, Go Slow

Once China has the military capabilities to finally solve its Taiwan problem, Xi could find it politically untenable not to do so, given the heightened nationalism of both the CCP and the public. At this point, Beijing will likely work its way up to a large-scale military campaign, beginning with “gray zone” tactics, such as increased air and naval patrols, and continuing on to coercive diplomacy aimed at forcing Taipei to negotiate a political resolution. 

Psychological warfare will also be part of Beijing’s playbook. Chinese exercises around Taiwan not only help train the PLA but also wear down Taiwan’s military and demonstrate to the world that the United States cannot protect the island. The PLA wants to make its presence in the Taiwan Strait routine. The more common its activities there become, the harder it will be for the United States to determine when a Chinese attack is imminent, making it easier for the PLA to present the world with a fait accompli.

At the same time that it ramps up its military activities in the strait, China will continue its broader diplomatic campaign to eliminate international constraints on its ability to use force, privileging economic rights over political ones in its relations with other countries and within international bodies, downplaying human rights, and, above all, promoting the norms of sovereignty and noninterference in internal affairs. Its goal is to create the narrative that any use of force against Taiwan would be defensive and justified given Taipei’s and Washington’s provocations. All these coercive and diplomatic efforts will move China closer to unification, but they won’t get it all the way there. Taiwan is not some unoccupied atoll in the South China Sea that China can successfully claim so long as other countries do not respond militarily. China needs Taiwan’s complete capitulation, and that will likely require a significant show of force. 

If Beijing decides to initiate a campaign to forcibly bring Taiwan under Chinese sovereignty, it will try to calibrate its actions to discourage U.S. intervention. It might, for example, begin with low-cost military options, such as joint missile and airstrikes, and only escalate to a blockade, a seizure of offshore islands, and, finally, a full-blown invasion if its earlier actions fail to compel Taiwan to capitulate. Conducted slowly over the course of many months, such a gradual approach to armed unification would make it difficult for the United States to mount a strong response, especially if U.S. allies and partners in the region wish to avoid a war at all costs. A gradual, coercive approach would also force Washington to initiate direct hostilities between the two powers. And if China has not fired a shot at U.S. forces, the United States would find it harder to make the case at home and in Asian capitals for a U.S. military intervention to turn back a slow-motion Chinese invasion. An incremental approach would have domestic political benefits for Beijing, as well. If China received more international pushback than expected or became embroiled in a campaign against the United States that started to go badly, it would have more opportunities to pull back and claim “mission accomplished.”  

But China could decide to escalate much more rapidly if it concluded that the United States was likely to intervene militarily regardless of whether Beijing moved swiftly or gradually. Chinese military strategists believe that if they give the United States time to mobilize and amass firepower in the vicinity of the Taiwan Strait, China’s chances of victory will decrease substantially. As a result, they could decide to preemptively hit U.S. bases in the region, crippling Washington’s ability to respond.

In other words, U.S. deterrence—to the extent that it is based on a credible threat to intervene militarily to protect Taiwan—could actually incentivize an attack on U.S. forces once Beijing has decided to act. The more credible the American threat to intervene, the more likely China would be to hit U.S. forces in the region in its opening salvo. But if China thought the United States might stay out of the conflict, it would decline to attack U.S. forces in the region, since doing so would inevitably bring the United States into the war. 

Wishful Thinking

What might dissuade Xi from pursuing armed unification, if not U.S. military might? Most Western analysts believe that Xi’s devotion to his signature plan to achieve the “Chinese dream” of “national rejuvenation,” which requires him to maintain economic growth and improve China’s international standing, will deter him from using military force and risking derailing his agenda. They argue that the economic costs of a military campaign against Taiwan would be too high, that China would be left completely isolated internationally, and that Chinese occupation of the island would tie up Beijing for decades to come. 

But these arguments about the cost of armed unification are based more on American projections and wishful thinking than on fact. A protracted, high-intensity conflict would indeed be costly for China, but Chinese war planners have set out to avoid this scenario; China is unlikely to attack Taiwan unless it is confident that it can achieve a quick victory, ideally before the United States can even respond. 

Even if China found itself in a protracted war with the United States, however, Chinese leaders may believe they have social and economic advantages that would enable them to outlast the Americans. They see the Chinese people as more willing to make sacrifices for the cause of Taiwan than the American people. Some argue, too, that China’s large domestic market makes it less reliant on international trade than many other countries. (The more China economically decouples from the United States and the closer it gets to technological self-sufficiency, the greater this advantage will be.) Chinese leaders could also take comfort in their ability to quickly transition to an industrial wartime footing. The United States has no such ability to rapidly produce military equipment.

International isolation and coordinated punishment of Beijing might seem like a greater threat to Xi’s great Chinese experiment. Eight of China’s top ten trading partners are democracies, and nearly 60 percent of China’s exports go to the United States and its allies. If these countries responded to a Chinese assault on Taiwan by severing trade ties with China, the economic costs could threaten the developmental components of Xi’s rejuvenation plan.

Once China has the military capabilities to solve its Taiwan problem, Xi could find it politically untenable not to do so.

But Chinese leaders have good reason to suspect that international isolation and opprobrium would be relatively mild. When China began to cultivate strategic partnerships in the mid-1990s, it required other countries and organizations, including the European Union, to sign long-term agreements to prioritize these relationships and proactively manage any tensions or disruptions. All these agreements mention trade, investment, economic cooperation, and working together in the United Nations. Most include provisions in support of Beijing’s position on Taiwan. (Since 1996, China has convinced more than a dozen countries to switch their diplomatic recognition to Beijing, leaving Taiwan with only 15 remaining allies.) In other words, many of China’s most important trading partners have already sent a strong signal that they will not let Taiwan derail their relationships with Beijing. 

Whether compelling airlines to take Taiwan off their maps or pressuring Paramount Pictures to remove the Taiwanese flag from the Top Gun hero Maverick’s jacket, China has largely succeeded in convincing many countries that Taiwan is an internal matter that they should stay out of. Australia has been cautious about expanding its military cooperation with the United States and reluctant even to consider joint contingency planning over Taiwan (although the tide seems to be shifting in Canberra). Opinion polls show that most Europeans value their economic ties with China and the United States roughly the same and don’t want to be caught in the middle. Southeast Asia feels similarly, with polls showing that the majority of policymakers and thought leaders from member states of the Association of Southeast Asian Nations believe the best approach to U.S.-Chinese sparring is for the association to “enhance its own resilience and unity to fend off their pressures.” One South Korean official put it more memorably in an interview with The Atlantic, comparing the need to pick sides in the U.S.-Chinese dispute to “asking a child whether you like your dad or your mom.” Such attitudes suggest that the United States would struggle to convince its allies to isolate China. And if the international reaction to Beijing’s crackdowns in Hong Kong and Xinjiang is any indication, the most China can expect after an invasion of Taiwan are some symbolic sanctions and words of criticism. 

The risk that a bloody insurgency in Taiwan will drag on for years and drain Beijing of resources is no more of a deterrent—and the idea that it would be says more about the United States’ scars from Afghanistan and Iraq than about likely scenarios for Taiwan. The PLA’s military textbooks assume the need for a significant campaign to consolidate power after its troops have landed and broken through Taiwan’s coastal defenses, but they do not express much concern about it. This may be because although the PLA has not fought a war since 1979, China has ample experience with internal repression and dedicates more resources to that mission than to its military. The People’s Armed Police boasts at least 1.5 million members, whose primary mission is suppressing opposition. Compared with the military task of invading and seizing Taiwan in the first place, occupying it probably looks like a piece of cake.

For all these reasons, Xi may believe he can regain control of Taiwan without jeopardizing his Chinese dream. It is telling that in the flood of commentary on Taiwan that has come out of China in recent months, few articles have mentioned the costs of war or the potential reaction from the international community. As one retired high-level military officer explained to me recently, China’s main concern isn’t the costs; it’s sovereignty. Chinese leaders will always fight for what is theirs. And if China defeats the United States along the way, it will become the new dominant power in the Asia-Pacific. The prospects are tantalizing. The worst-case scenario, moreover, is that the United States reacts more quickly and effectively than expected, forcing China to declare victory after limited gains and go home. Beijing would live to capture Taiwan another day. 

No Exit

These realities make it very difficult for the United States to alter China’s calculus on Taiwan. Richard Haass and David Sacks of the Council on Foreign Relations have argued in Foreign Affairs that the United States could improve cross-strait deterrence by ending its long-standing policy of “strategic ambiguity”—that is, declining to state specifically whether and how it would come to Taiwan’s defense. But the main problem is not U.S. resolve, since Chinese leaders already assume the United States will intervene. What matters to Xi and other top Chinese leaders is whether they think the PLA can prevail even in the face of U.S. intervention. For that reason, successful deterrence requires convincing China that the United States can prevent it from achieving its military objectives in Taiwan, a difficult undertaking that would come with its own downsides and potential risks. 

One way to convince Beijing would be to develop the capabilities to physically stop it from taking Taiwan—deterrence by denial. This would involve positioning missile launchers and armed drones near Taiwan and more long-range munitions, especially antiship weapons, in places such as Guam, Japan, and the Philippines. These weapons would help repel a Chinese amphibious and air assault in the initial stages of an attack. If Chinese leaders knew their forces could not physically make it across the strait, they would not consider trying unless Taiwan took the truly unacceptable step of declaring independence. 

The United States would also need to invest heavily in intelligence, surveillance, and reconnaissance in the region. The attractiveness of a full-on invasion from China’s perspective lies in the possibility of surprise: the United States may not be able to respond militarily until after Beijing has taken control of the island and the war is over. Leaving aside the operational challenges of such a response, it would be politically difficult for any U.S. president to authorize an attack on China when no shots were being fired at the time. 

Xi may believe he can regain control of Taiwan without jeopardizing his Chinese dream.

An enhanced U.S. military and intelligence presence in the Indo-Pacific would be sufficient to deter most forms of armed unification, but it wouldn’t prevent China from using force altogether. Beijing could still try to use missile strikes to convince Taiwan to bend to its will. To deter all Chinese military aggression, the United States would therefore need to be prepared to destroy China’s missile batteries—which would involve U.S. strikes on the Chinese mainland. Even if U.S. intelligence capabilities improve, the United States would risk mistaking Chinese military exercises for preparations for an invasion—and igniting a war by mistake. China knows this and may conclude the United States would not take the chance. 

The most effective way to deter Chinese leaders from attacking Taiwan is also the most difficult: to convince them that armed unification would cost China its rejuvenation. And the United States cannot do this alone. Washington would need to persuade a large coalition of allies to commit to a coordinated economic, political, and military response to any Chinese aggression. And that, unfortunately, remains a remote possibility, since many countries are unwilling to risk their economic prospects, let alone a major-power war, in order to defend a small democratic island. 

Ultimately, then, there is no quick and easy fix to the escalating tensions across the strait. The only way the United States can ensure Taiwan’s security is to make an invasion impossible for Beijing or to convince Chinese leaders that using force will cause them to be pariahs. For the last 25 years, however, Beijing has sought to prevent Washington from doing either. Unfortunately for Taiwan, only now is the United States waking up to the new reality.

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Why Beijing Might Resort to Force

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Donald K. Emmerson
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This essay was first published in the political quarterly Democracy Journal. It is part of a four-essay collection, titled The Stakes in Asia, on the future of U.S.-Asian relations. This essay focuses on the nations of Southeast Asia, the three other essays on China, Japan, and South and North Korea. 


 

EVERYTHING WILL BE OKAY” read the t-shirt worn by 19-year-old Ma Kyal Sin, also known as “Angel,” in Mandalay, Myanmar, on March 3, 2021. Hundreds of thousands of mostly young Burmese had thronged the streets of their country’s cities to continue protesting the military’s seizure of power the month before. She had joined them to serve on the front line, hoping to protect her unarmed companions from the advancing police. She was shot in the back of the head and died. Soon after she was buried, the junta exhumed her body, took it away, and filled her grave with concrete. The regime then claimed that autopsy results showed the bullet in her brain could only have been fired by another demonstrator. Yet when she was shot, she had her back to the oncoming police.

Everything is not okay in Myanmar and won’t be for some time to come. As of the beginning of April, the country’s military, or Tatmadaw, led by the coup’s leader, army General Min Aung Hlaing, had killed an estimated 400 unarmed Burmese, who were guilty of nothing but peacefully protesting the general’s merciless usurping regime. By mid-April, the junta’s murders exceeded 700 in number.

Nor is everything okay next door in Thailand, another mainland Southeast Asian state. Seven years have passed since that country’s latest coup in 2014—the 13th successful seizure of power there since the overthrow of its then-absolute monarchy in 1932. Although elections were finally held in 2019, the military manipulated them to reinforce its rule. Young Thais have been demonstrating against the government off and on since early in 2020.

East of Thailand are three more China-facing states in mainland Southeast Asia: Cambodia, Laos, and Vietnam. Cambodia’s dictator Hun Sen has kept his grip on power for more than 36 years, a record exceeded in Asia only by the Ayatollah Khameini in Iran. In March 2021, a Cambodian court did Hun Sen’s bidding yet again by sentencing the nine senior members of the country’s already banned opposition party, including its leader, to more than two decades in prison, effectively barring them from ever returning home from exile.

Laos is, in effect, a fiefdom of the harshly dominant Lao People’s Revolutionary Party (LPRP), whose leaders have quashed opposition, curtailed liberties, and forcibly suppressed the formation of a civil society independent of that single-party state. Vietnam’s draconian law on cybersecurity outlaws the “organizing, activating, colluding, instigating, bribing, cheating or tricking, manipulating, training, or drilling” of “people to oppose the State of the Socialist Republic of Vietnam,” while also criminalizing undefined actions such as “causing confusion,” “distorting history,” and “denying revolutionary achievements.” Unsurprisingly, Laos and Vietnam rank 172nd and 175th, respectively, on the 2020 World Press Freedom Index of 180 countries.

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The Mainland-Maritime Contrast

Myanmar, Thailand, Cambodia, Laos, and Vietnam constitute sub-continental Southeast Asia. Myanmar, Laos, and Vietnam share land borders with China. The remaining Southeast Asian states—the Philippines, Malaysia, Brunei, Indonesia, Singapore, and Timor-Leste—are peninsular or insular in character and farther from China. It is common practice in Southeast Asian studies to distinguish the China-proximate five “landed” or mainland countries in northwestern Southeast Asia from the “maritime” six farther to the south and the east.

Six of the ten members of the Association of Southeast Asian Nations are “Not Free”: Brunei, Cambodia, Laos, Myanmar, Thailand, and Vietnam. More than half of ASEAN is despotic by this measure, and of those six authoritarian members, five are on the mainland.

Geography and geology are not the same. Of the five mainland countries, four have seacoasts; only Laos is land-locked. All of the six maritime states are entirely or partly archipelagic. But Malaysia and Singapore are subcontinental in that they occupy the southernmost end of peninsular Southeast Asia. A projected three-stranded set of overland railroads connecting Malaysia and Singapore to mainland China, if completed, could socioeconomically enhance their subcontinental character. The strands would run southward from Kunming, the capital city of China’s Yunnan province, through Myanmar, Laos, and Vietnam to Bangkok in Thailand and onward through Malaysia to Singapore. Completing these north-south connections has been a priority of Xi Jinping’s Belt and Road Initiative (BRI).

Fears of “mainlandization”—Sinification—have arisen in that context. China’s presence is already amply manifest in the northern parts of Myanmar and Laos, where economic and cultural enclaves have formed around the influxes of tourists and immigrants from the PRC. Expatriate and local Chinese dominate the economy of Myanmar’s second largest city, Mandalay, where young Ma Kyal Sin died. Mandarin is widely spoken there. If the BRI succeeds, if the north-south tracks are laid and maintained, and if traffic then flourishes back and forth to the mutual “win-win” benefit of China and all of the five Southeast Asian economies along the way, Beijing could further enlarge its footprint in the region.

Could does not mean will. The world economy shrank by more than 4 percent in 2020. Infrastructure is costly, and its returns are long-term. To varying extents in different countries, envisioned connectivity has become a casualty of the COVID-19 pandemic, as governments have closed borders to reduce transmission of the virus and its variants. In 2019-2020, the pace of overseas lending by China’s policy banks slowed, and Chinese spending on megaprojects in the BRI fell to its lowest level ever. China’s latest five-year plan calls for “dual circulation,” abroad as well as at home, but the domestic economy is given priority.

That said, China’s economic growth in 2021 could reach 8 percent and thereby fuel Beijing’s campaign for influence in mainland Southeast Asia. In Laos, for example, aggressive Chinese lenders and corrupt local elites have indebted that country to the point that its lucrative electricity exports may soon be controlled by China. As one of the poorest members of the Association of Southeast Asian Nations (ASEAN), Laos needs those revenues. Majority control over the country’s network of high-voltage power lines could give Beijing leverage that it could wield to ensure that Laos remains a compliant “friend” of China.

As illustrated by the case of China-facing Laos, the distribution of despotism in Southeast Asia tends to reinforce the mainland-maritime divide. “Many have said over the years that ASEAN is a club of dictators,” a Human Rights Watch official observed in 2016.

That harsh judgment is less of an exaggeration than one would wish. According to Freedom House, six of the ten members of the Association of Southeast Asian Nations are “Not Free”: Brunei, Cambodia, Laos, Myanmar, Thailand, and Vietnam. More than half of ASEAN is despotic by this measure, and of those six authoritarian members, five are on the mainland. The only maritime autocracy is tiny Brunei, an absolute monarchy perched on the coast of Borneo facing the South China Sea. The remaining four ASEAN states—Indonesia, Malaysia, the Philippines, and Singapore—are all maritime and rated “Partly Free.” The lone “Free” country in the region is Timor-Leste, which occupies three neighboring bits of territory in the Indonesian archipelago and is not a member of ASEAN, although it would like to join.

Three crude descriptions follow: First, mainland Southeast Asia is autocratic. Second, maritime Southeast Asia is semi-democratic—a middle or mixed position reflected in the balance between the two smallest sea-linked states by population, autocratic Brunei and democratic Timor-Leste. Third, ASEAN’s membership tilts authoritarian, being six-tenths autocratic, four-tenths semi-democratic, and zero tenths democratic by Freedom House standards.

China’s Role: ‘Stability’ Over Democracy

How should China and its strategy be factored into these comparisons? Is geography destiny? Xi Jinping and his advisors would like their Southeast Asian counterparts to think so. Consider Beijing’s proposal for an ASEAN-China Community of Common Destiny. Does “community of common destiny” express China’s empathy, its presumption, or its intention to possess and preempt? Beijing wants its Southeast Asian neighbors to treat the idea of sharing a community as reassuring proof of how much and how sincerely China cares about them and their region. But a common destiny precludes divergent scenarios and destinations. If China’s destiny is to remain a party-state dictatorship under one leader for life, does Beijing want that same fate to encompass the rest of Southeast Asia? Does it strive to “mainlandize” the entire region by reinforcing top-down rule in “Not Free” Southeast Asia and making the “Partly Free” maritime states “Not Free” as well?

Shorn of all pretense, Xi Jinping’s hope is that China’s southern neighbors will look at a map and give up [...] Although China’s political template is authoritarian, Xi is not an evangelist for autocracy in Southeast Asia.

China is not evangelically despotic toward its neighbors in an ideological sense. “Socialism with Chinese characteristics” is an unexportable mishmash—oxymoronic in theory, contingent in practice, and parochial by its very name. As a candidate for travel beyond the PRC, it lacks legs. Nor is China counting on converting Southeast Asians into loyal fans of a Chinese model. Beijing is vigorously trying to bolster its soft power and incentivize its neighbors to acknowledge and join a Chinese sphere of regional influence voluntarily. The ASEAN states collectively are already China’s largest trading partner and vice versa. But if public diplomacy and economic embraces fail, it is fatalism, not communism, that Beijing is betting on.

Shorn of all pretense, Xi Jinping’s hope is that China’s southern neighbors will look at a map and give up. Why? Because, as the PRC’s current top diplomat Yang Jiechi famously told his ASEAN counterparts in 2010, “China is a big country and other countries are small countries, and that’s just a fact.” As if big China were saying to its small neighbors: Our common destiny is to experience and accept the disparity between us, for we and you are destined to remain unequal, whether you like it or not. Take the South China Sea. We—the PRC—were always destined to absorb nearly all of that body of water based on Chinese sovereignty “formed over the course of over two thousand years,” to quote Jiechi in 2016.

The South China Sea is not lebensraum. It is not viewed in Beijing the way Berlin saw Poland in August 1939. Nevertheless, Xi’s China continues to manufacture destiny with Chinese characteristics in the heartwater of Southeast Asia by creating maritime facts on the water that Southeast Asians cannot reverse. These include China’s forcible possession of land features claimed by ASEAN’s littoral states; its conversion of those features into military bases from which it can threaten the region; and its orchestration of at-sea collisions, near-collisions, encirclements, and swarmings to stop Southeast Asians from fishing or from lifting undersea oil and gas even within their own Exclusive Economic Zones, all in clear violation of the UN Convention on the Law of the Sea. Beijing hopes that someday its control over the South China Sea and the land features it has weaponized there will be “just a fact” that ASEAN’s members will have had to accept, their lack of China’s size and strength having convinced them that they have no choice but to kowtow. Rather than trying to seed the region with despotisms in China’s image, Beijing prefers to encourage Southeast Asian fatalism, and with it the passivity and resignation to subservience that sheer necessity would imply.

Although China’s political template is authoritarian, Xi is not an evangelist for autocracy in Southeast Asia. If, as has been claimed, Xi’s China is “ideologically bankrupt,” it has no surplus in ideas to spend convincing the world to mimic its doctrine. As exportable advice, the formula that Beijing does represent—regime legitimation by economic performance—is more pragmatic than ideological. There are, nevertheless, three ways in which Chinese foreign policy in Southeast Asia affects, and is affected by, the more despotic character of ASEAN’s mainland compared with its maritime member states.

As it seeks to influence its neighbors and the world beyond, Xi’s China may be ideologically promiscuous. But Beijing does love stability. When Adam Prezorskwi described democracy as “institutionalized uncertainty,” he noted its potentially beneficial effect. The unpredictability of electoral outcomes in a democratic system is stabilizing insofar as it motivates a losing candidate not to turn against the system but rather to run again within it. The chance of victory—positive uncertainty—may warrant another try.

But institutionalized uncertainty is anathema to the Communist Party of China. The power and authority of the CPC under a could-be leader for life supplies the institutionalized certainty that a stable dictatorship needs—or thinks it needs—to survive. Rapid economic growth and the systematic forestalling of civil society in China continue at least to postpone recourse to another Tiananmen massacre. In roughly comparable ways, institutionalized repression in Laos, Cambodia, and Vietnam has helped keep those dictatorships stable—so far. Beijing’s faith in the stabilizing power of institutionalized certainty makes dealing with foreign despots a subjectively rational choice. And doing so can at least simplify Chinese diplomacy. Democracies have more actors who need to be taken into account, including critics of China whose barbs are protected speech.

Consider Myanmar. Given Beijing’s economic and strategic stake in using Myanmar as a way station for greater Chinese access to the Indian Ocean, Xi is probably furious that Senior General Min Aung Hlaing has rendered Myanmar unstable and unpredictable. The general’s regime is not innately pro-China. But Beijing likely calculates that a democratic alternative to military rule could jeopardize China’s position even more. In the days immediately following the Tatmadaw’s seizure of power, Beijing did not even acknowledge that a coup had taken place, calling it a mere “cabinet reshuffle” and blocking the UN Security Council from criticizing what had occurred. Inside Myanmar, anti-China protests ensued, with accusations stemming from rumors that China might even have encouraged the coup due to its own despotic character and inclination. The rumors sound unfounded, but the fact that they circulated among democracy-minded opponents of the junta could only reinforce Beijing’s preference for military rule.

Xi’s China craves praise. Chinese “wolf warrior” diplomats in Southeast Asia have not been shy about urging and thus implicitly requiring recipients of Chinese “gifts,” including vaccines for local use against the COVID-19 virus, to publicly thank China for its generosity—preferably in profuse terms. In a democracy that values personal worth more than hierarchical deference and obligatory gratitude, kowtowing may be unpopular. In contrast, under a despot, obligatory upward fawning may be normal and thus more easily performed to please a foreign donor. An authoritarian patron may welcome such expressions of fealty as signs of submission. In addition, China’s often visceral dismissal of foreign criticism, compared with the normality of critique in democratic states, would suggest that Beijing prefers to deal with leaders of governments that enforce gratitude for reasons of material dependence on China, as opposed to those who refuse to self-censor. Looking back and forward toward the future, China’s history as a presumptuous empire and its Xi-led quest for “rejuvenation” to recover former glory, before its “century of humiliation” by the West, are not conducive to comportment as a Westphalian state dealing on a basis of equality with other states.

Third and finally, if authoritarian China is about product with little regard for process, whereas democratic society reverses those priorities, it stands to reason that China’s policymakers may, other things being equal, prefer to partner with autocratic heads of state who can get things done, never mind how.

Pushing Back and Looking Forward

Deterministically structural explanations of China’s influence in Southeast Asia—size, proximity, a magnetic economy—overlook the human factor: the capacity of the region’s people and leaders to question and reject dependence on tectonic conditions that stack the deck in China’s favor. To Beijing’s likely chagrin, that capacity is amply evident in the opinions of elite-level Southeast Asians who follow their countries’ foreign affairs. The ISEAS-Yusof Ishak Institute’s consecutive annual surveys of the views of these individuals have revealed their rising mistrust of China and, conversely, their rising trust of the United States.

Sampled in 2018, these elites mistrusted China and the United States in equal measure. In that year, 52 percent had little to no confidence that China would “do the right thing” in world affairs, while 51 percent said the same thing about the United States. But in 2019 and 2020, that pox on both houses has consistently and markedly evolved in China’s disfavor. By 2020, 63 percent of the Southeast Asian respondents mistrusted China, compared with 31 percent who mistrusted America. If that shift seems odd in light of the destabilizing idiosyncrasies of Donald Trump, it should be noted that the 2020 survey was conducted late in the final year of his presidency and the questions were about what China and the United States could be expected to do in the future. China’s hope for loyal neighbors received a further blow in the answers to a question about whether ASEAN, were it forced to align itself with one of the two big rivals, should side with China or with the United States. Although 39 percent of the respondents opted for China, 62 percent chose the United States.

Opinions are malleable. The popularities of China and the United States will fluctuate in tandem with future events. Although the survey research cited above has portrayed China as untrustworthy, expansionists in Beijing could take comfort in the data on Southeast Asian perceptions of relative power as a matter of fact, trustworthiness aside. Asked in 2020 which country or regional organization (such as ASEAN or the European Union) was the most influential economic power in Southeast Asia, 76 percent said China. Merely 7 percent named America. China won as well, though by a less overwhelming margin, when the same question was asked regarding political and strategic influence. That China is most consequential in those regards garnered 49 percent agreement, compared with 30 percent who thought the United States fitted that description. In effect, the survey inadvertently endorsed China’s cultivation of acquiescent fatalism in Southeast Asia—destiny over opportunity, realpolitik over moralpolitik—to the marginal advantage of Beijing.

In the months and years to come, major outside actors—the United States, Japan, and India among others—could work with autonomy-seeking Southeast Asian states to slow the Chinese juggernaut in Southeast Asia.

China is not significantly or consistently more or less popular in mainland Southeast Asia than it is in the maritime part of the region. Mistrust of China, for example, is highest in mainland Vietnam and in the maritime Philippines, albeit for different reasons. The Vietnamese remember their history of resistance to domination by China and resent its current bullying in the South China Sea. The latter behavior also angers Filipinos, whose own post-colonial history has tended, with exceptions, to involve accommodation with the United States. But the existence of a structural straitjacket that a Sinocentric understanding of “common destiny” would imply is more evident in the countries located closer to China that are accordingly less able to ignore their huge, overbearing, and censorial neighbor.

China is not willfully spreading autocracy in Southeast Asia. China’s relations with its neighbors are motivated by interest not ideology. With the stark exception of Vietnam, however, one can envision an authoritarian symbiosis of sorts developing between despotic China and potential satellite despotisms along its southern land border. Myanmar could become a test case in this context. If the junta crushes the opposition, if ASEAN does little more than slap the wrist of its murderous member, and if Western outrage drives the Tatmadaw into China’s arms, the growth of a Chinese sphere of influence based on authoritarian connivance could someday even split ASEAN roughly into its northwestern-subcontinental and southeastern-archipelagic parts.

Nevertheless, at least for now, the bravery of the martyred Ma Kyal Sin and her co-protestors in Myanmar, and of their counterparts in Thailand protesting against their own military regime, evokes, at least for now, a less despotic and subordinated future for Southeast Asia. Authoritarian instability is not an oxymoron. China’s own domestic stability and prosperity are not guaranteed. Its soft power deficit is real, and its overreaching under Xi Jinping could continue to vindicate Southeast Asian distrust. In the months and years to come, major outside actors—the United States, Japan, and India among others—could work with autonomy-seeking Southeast Asian states to slow the Chinese juggernaut in Southeast Asia.

A fresh wave of democratization in Southeast Asia is not on the horizon. But the destiny of even the already undemocratic mainland portion of Southeast Asia is not—not yet at least—made in Beijing.

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Chinese foreign policy in Southeast Asia affects, and is affected by, the more despotic character of ASEAN’s mainland compared with its maritime member states. But the destiny of even the already undemocratic mainland portion of Southeast Asia is not—not yet at least—made in Beijing.

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Callista Wells
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The China Program at Shorenstein APARC had the pleasure of hosting Ryan Hass, Michael H. Armacost Chair in Foreign Policy Studies at the Brookings Institution for the program "Partner, Competitor, and Challenger: Thoughts on the Future of America’s China Strategy." Hass explored cooperation and competition between the United States and China before engaging in a lively Q&A session with the audience. Professor Jean Oi, William Haas Professor of Chinese Politics and director of the APARC China Program, moderated the event.

Presently, China is at once a major and increasingly hostile competitor to the U.S., a formidable challenger to U.S. regional and global leadership, and an important partner on a range of transnational challenges. An important and pressing question for many is whether or not it will be possible for both sides to coexist amidst intensifying competition. In his talk, Ryan Hass explored this question by delving into the present and future of US-China relations, as well as the discourse that shapes and is shaped by that relationship. He also discussed the likelihood of conflict between the two countries, particularly surrounding Taiwan, suggesting that it might not be as likely as many of us fear. Listen now: 

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Ryan Hass, Michael H. Armacost Chair in Foreign Policy Studies at the Brookings Institution, discusses the future of US-China relations. Can we find room for cooperation in this contentious relationship?

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Oriana Skylar Mastro
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This op-ed by Oriana Skylar Mastro was originally published in Foreign Affairs.

A new administration in Washington faces a familiar problem: North Korea is once again testing missiles, including ballistic missiles, in contravention of a UN Security Council resolution. Rather than retread dead-end paths, the administration of U.S. President Joe Biden has pledged to think anew on North Korea, and it has already distinguished itself from its predecessor by signaling that it will consult with U.S. allies and partners to formulate a strong response to Pyongyang that does not rule out diplomacy.

Such a reorientation is welcome. But if the new administration really wants to move the needle on North Korea, it will need to rethink the assumptions it has inherited about China’s role there. So far, the Biden team has cleaved to the long-held view that the United States and China share a common interest in the nuclear disarmament of North Korea and that U.S. policy there must make use of Beijing’s tremendous influence over the government in Pyongyang. During his visit to Seoul last week, Secretary of State Antony Blinken asserted that “Beijing has an interest, a clear self-interest, in helping to pursue the denuclearization of [North Korea] because it is a source of instability.” Blinken further paid tribute to China’s “critical role" and “unique relationship" with North Korea.

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But Beijing has demonstrated for almost three decades where its self-interest really lies, and that is in maintaining the status quo. China certainly doesn’t want to see North Korea weakened and the United States strengthened on the Korean Peninsula. But neither does it want the balance to tip so strongly toward North Korea that the United States feels compelled to bulk up its military posture. China is toeing a careful line to keep the prospect of peaceful denuclearization alive without provoking Pyongyang or aggravating tensions with the United States.

If Beijing were to do nothing to assist in denuclearization, the United States could lose confidence in diplomacy and decide instead to increase its military presence on the peninsula or even to take military action. But if Beijing does too much to help the United States, North Korea could collapse, and the whole peninsula could fall within the U.S. orbit. China’s North Korea policy is therefore an elaborate balancing act. Through it, Beijing seeks to maintain influence over the regime of Kim Jong Un without emboldening it; participate in multilateral efforts to pressure North Korea, such as the UN sanctions program, without exposing Pyongyang to pressure that could precipitate regime collapse; and offer the United States just enough hope for a diplomatic solution to forestall military intervention while simultaneously ensuring that any resolution contributes to China’s relative power, not that of the United States.

China’s Balance

For better or worse, the past year has been one of great change in Chinese strategy and policy, especially toward its neighbors. China flew an unprecedented number of sorties into Taiwanese airspace, placed trade sanctions on Australia after the latter supported inquiries into the origins of COVID-19, and came to blows with India over a border dispute that had not seen armed conflict in decades. But in the case of North Korea, China has stuck to its balancing act.

Beijing and Pyongyang have been on tepid terms the past few years. On paper, the Sino-North Korean Mutual Aid and Cooperation Friendship Treaty makes the two countries allies. But in practice, the Chinese government has distanced itself from the alliance, stating that if North Korea provoked a conflict, Beijing had no obligation to defend it. A Chinese Foreign Ministry spokesperson remarked in 2006 that China was not an ally of North Korea, and Chinese Foreign Minister Wang Yi has characterized the relationship as “normal state-to-state relations.”

A flurry of diplomatic activity in 2018 and 2019 gave many the impression that the two countries meant to repair and normalize their relationship. Xi Jinping and Kim Jong Un met for the first time in March 2018, marking Kim’s first meeting with any world leader. Four more meetings between the two followed, in May and June 2018 and January and June 2019, and Chinese official media noted that the relationship “radiated a new vitality.” But despite numerous exchanges of platitudes since—just last week, Xi sent a message to Kim affirming that the countries’ traditional friendship is a “valuable asset” and seeming to suggest an intention to strengthen relations—Xi has maintained his distance from Kim and his regime.

The 70th anniversary of China’s entrance in the Korean War passed without a summit or fanfare about the nations’ closeness. Social-distancing requirements undoubtedly had something to do with the lack of a high-level meeting but could not explain the absence of the customary propaganda about how the two countries are like “teeth to lips.” Moreover, Xi continues to avoid referring to North Korea as an ally. After his state visit to Pyongyang in June 2019, Xi described the relationship as one of  “friendly cooperative relations,” and on a January 2021 phone call with Kim, he characterized the bilateral relationship as one of “friendly socialist neighbors linked by mountains and rivers”—in the language of the Chinese government, hardly an expression of closeness and solidarity.

Then there is China’s approach to managing international efforts aimed at reining in North Korea. Here too, China has continued the same dance, trying to come off as a team player while restraining the international community from acting too harshly against the Kim regime. China voted in favor of all three of the UN Security Council resolutions on North Korea in 2017. In 2019, Beijing even garnered praise from then-President Donald Trump, who said that China was “a big help” in dealing with North Korea. On March 25, 2021, Pyongyang conducted two ballistic missile tests in violation of the UN Security Council resolutions, and Beijing’s Ministry of Foreign Affairs did not condemn them but predictably “call[ed] on all parties concerned to work together to maintain the situation of detente, and promote political settlement of the Peninsular issue through dialogue and consultation.”

Beijing has always been skeptical of using sanctions to coerce North Korean compliance on the nuclear issue, expressing concern that too much pressure could push Kim to lash out and undermine international efforts. When the United Nations imposed sanctions in 2017, China at first appeared poised to strictly enforce them. But then Beijing quickly reverted to business as usual, teaming up with Moscow to try to ease sanctions. China also allegedly violated the regulations by supplying North Korea with 22,730 tons of refined oil and helping Pyongyang export about $370 million worth of coal. Three months ago, the United States publicly accused China of circumventing the sanctions to aid North Korea, and China denied having done so.

Beijing’s North Korea policy is primarily motivated by a desire to counter U.S. power in the Asia-Pacific region and increase Chinese influence on the Korean Peninsula. The nuclear issue gives Beijing a pretext to call for the United States to reduce its military presence and activity on the peninsula on the grounds that North Korea would halt weapons development if it felt less threatened.

Beijing decidedly does not want a war on the peninsula. Such a conflict could destabilize the region and end with a unified Korea under U.S. influence. Trump’s “fire and fury” approach and his willingness to meet directly with Kim threatened China’s ability to triangulate between Washington and Pyongyang in order to ensure its own maneuverability. The real possibility that the United States would forcibly displace the North Korean regime convinced Beijing to both strengthen its ties with Kim and put real pressure on his government. But the last Trump-Xi summit, in February 2019, was a failure; the Trump administration seemingly abandoned its focus on denuclearizing the Korean Peninsula, and Beijing returned to business as usual.

Biden’s Choice

To set a new course on North Korea, the Biden administration needs to throw Beijing off balance once more. The status quo—in which Beijing enhances its influence over the future of the peninsula and wins international image points while simultaneously undercutting the United States’ North Korea policy—is no longer acceptable. The United States needs to strike its own balance: one in which Washington makes progress on reducing the threat from North Korea while also gaining ground in its competition with Beijing.

Multilateral diplomacy that takes a more incremental approach to denuclearization, such as a freeze on North Korea’s current program, will not accomplish this end. Beijing would welcome such a move, as many in China thought that Trump’s demand for complete denuclearization was counterproductive and that Washington’s alienation of its allies risked spurring South Korea or Japan to develop nuclear capabilities. China sees a multilateral approach as one that affords it more influence on the relevant players and can help ensure a positive outcome for Beijing.

The White House should instead consider pursuing multilateral diplomacy that excludes Beijing or that at the very least does not give China pride of place. Such an approach would be consistent with the predilections of many of Biden’s advisers, who seek a pragmatic tack that does not rely on Beijing’s goodwill. China would likely react by scrambling to redefine its role in managing peninsular affairs in order to make sure that it is not cut out of any deal. China might tighten its relations with North Korea and Russia in order to influence policy through them as proxies. The United States could then join forces with European allies in response, whether to counter Beijing’s overreaching claims in the South China Sea or to buttress democracies against Chinese political interference.

Greater closeness between China and North Korea could prove useful to the United States. North Korea has in effect placed the harshest imaginable sanctions on itself, shutting its borders completely in January 2020 to prevent the spread of the novel coronavirus. The country’s trade with China is down 81 percent as a result. China’s economic leverage over North Korea has thus dissipated—and with it, the effectiveness of sanctions as a coercive tool. China may now work to create new leverage against North Korea, perhaps through positive inducements, which could supply another tool for the Biden administration to use later on. And if Beijing cannot forge closer ties with Pyongyang, it might even seek to ingratiate itself with Seoul—also a favorable development for Washington, as such relations may allow the United States to pursue deeper military cooperation with South Korea’s regional allies without fear of provoking a strong Chinese response.

Some Biden advisers, including Kurt Campbell, have called for a bolder approach. One possibility is for Washington to shift its focus from denuclearization to arms control. Under this scenario, the United States would accept North Korea as a de facto nuclear state and take measures to enhance deterrence against it, such as stepping up the U.S. military presence and tightening military cooperation with allies in the region. China would have a harder time than before delegitimizing the U.S. military presence in the region and just might be compelled to do what is necessary to induce North Korea’s denuclearization, even at the cost of destabilizing the regime.

Biden’s new approach to North Korea must force China to tip its carefully constructed balance toward either complete cooperation or obvious obstruction. Depending on which way China goes, the United States can then decide whether to include Beijing or cut it out of its North Korea policy efforts. But one thing is clear: conducting business as usual with Beijing hurts U.S. objectives in both denuclearization and competition with China.

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Biden must force Beijing to cooperate fully with Washington or pivot to obvious obstruction writes FSI Center Fellow Oriana Skylar Mastro in her latest op-ed for Foreign Affairs.

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Callista Wells
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The China Program at Shorenstein APARC had the privilege of hosting Jude Blanchette, the Freeman Chair in China Studies at the Center for Strategic and International Studies (CSIS). The program, entitled "What’s ‘Communist’ about the Communist Party of China?," explored the goals and ideology of the Chinese Communist Party (CCP), as well as what they might mean for the future of China in the global community. Professor Jean Oi, William Haas Professor of Chinese Politics and director of the APARC China Program, moderated the event.

After the death of Mao Zedong in 1976, the goals of the CCP became less clear. As the country began to adopt market reforms in the 1980s and 1990s, CCP theorists were forced into contortions providing ideological justifications for policies that appeared overtly capitalist. Deng Xiaoping’s concept of “Socialism with Chinese characteristics” came to be seen as a theoretical fig leaf rather than a description of an egalitarian economic system, and by the 2000s, a consensus emerged that the CCP had completely abandoned any pretense of pursuing the Marxist vision it purported to hold. With the rise of Xi Jinping, however, the Party talks with renewed vigor about Marxism-Leninism and the goal of achieving actual, existing socialism. Has the CCP re-discovered communism?  In his talk, Blanchette discussed the abandoned and existing legacies of Mao Zedong, Marxism-Leninism, and the CCP’s vision of socialism. Watch now: 

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