Bringing together all the longer Interpreter articles you were too busy to read this week.
We've had some interesting responses to Hugh White's piece from last week on China-Japan competition and what it means for the US-Japan alliance. This is addition to Malcolm Cook's critique last Friday.
First up, Christopher Pokarier argued that a key part of China's foreign policy is an attempt to delegitimise Japan:
Clearly, central to such a strategy is the stigmatisation of Japan, given its locale, continuing economic, technological and cultural clout, and alliance with the US. In recent months, wilful misrepresentation of Japan's contemporary character as a society and a polity under the leadership of Prime Minister Shinzo Abe has escalated.
This has been evidenced starkly in Chinese media reaction to Abe's recent visit to Australia and the close and deepening ties affirmed by the Australian and Japanese governments. Shrill criticism from mainland media soon became news in its own right in Australia, and a counterweight to the otherwise upbeat news cycle around Abe's visit.
Next up, Dhruva Jaishankar argued that what China fears most in Asia is some sort of middle-power coalition to balance Beijing's growing power:
A security partnership with India offers Japan at least two other benefits, both of which, if carried through, could undermine Beijing's plans for regional hegemony. Japan's military-to-military contacts with India enable it to prepare for out-of-area contingencies, particularly in the maritime realm, which represents a key step in Japan's path to becoming a normal military power. More significantly, the possibility of joint production of the US-2 aircraft with India, and its potential export to third countries, could mark a major development as part of Japan's reversal of its self-imposed ban on defence exports.
Finally, Brad Glosserman suggested that given Japan's strategic and economic realities, its responses to China's rise are constricted: [fold]
Given this context, Japan's choices become:
- The status quo, or alliance with the US: this allows Japan to balance psychological and structural constraints and maintain maximum freedom of maneuver. In truth, however, even this could push the Japanese public to the edge of its comfort zone.
- A nuclear power, without great power ambitions: this would be a practically impossible choice, given anti-nuclear sentiment in Japan. Pursuit of the nuclear option would isolate Japan and offer little security, which its strategic planners acknowledge. The public would never stomach an offensive posture, so any nuclear stance would be a poison pill, purely defensive in nature. (If I wanted to be as provocative as possible, I'd call this the 'North Korean option.') This undercuts Hugh's thesis of a nuclear-armed Japan striving to become a great power (add the cost of such a policy and the likelihood plunges even further).
- A junior partner to China: Japanese may not want to compete with China but they are too proud and too unsettled by China to accept subordinate status either. Even junior partner status within the alliance can be irritating, but the US uses the right language when discussing Japan to relieve that pressure. Japan could only accept a subordinate status to China when China is so transformed that it is no longer a threat to Japan (about the same time that Taiwan would vote to reunite with the mainland) and when Beijing offers a relationship that affords Japan the status it demands.
Hugh responded to his critics, offering this conclusion:
So what can Japan do? I think it faces a binary choice: accept Chinese primacy or try to preserve its full political and strategic independence. Which path Japan takes will depend, inter alia, on what kind of regional hegemon China might become. If it turned out to be as benign as the US has been in the Western Hemisphere, then a future for Japan as Asia's Canada might not be so bad. But how trusting are the Japanese willing to be? And what have the Chinese done to earn Japan's trust?
And the alternative? I may have misled Brad by describing Japan's other option as a return to 'great power' status. I do not mean that Japan would need to compete with China for hegemony in Asia, or assert a sphere of influence of its own to match and balance China's. In the right regional setting Japan could establish itself as a great power on equal terms with China, without seeking hegemony or a sphere of influence. For reasons I set out in The China Choice, that regional setting would need to resemble the nineteenth-century European Concert of Powers: a Concert of Asia. Only as an independent great power in that kind of setting can Japan be secure over coming decades, unless it is willing to accept subordination to China.
Sticking with Northeast Asia, Robert Kelly gave us two posts on whether the US should withdraw its forces from South Korea. In Part 1, he argued in the affirmative:
The US is not an empire. Where it can retrench, it should. Commitments should not last indefinitely.
This is an openly normative argument. If one embraces a full-throated version of US hegemony (militarised, globalised, interventionist) then this will not appeal. But post-Iraq, there is clear public desire to rein in American interventions, so the normative case for restraint, on liberal democratic grounds, is strong.
The costs of hegemony are not just financial. They also include the regular war-making and killing of foreigners; a sprawling, hugely intrusive national security state; domestic nativism; as well as torture, indefinite detention, rendition, and similar penal abuses. All this suggests that retrenchment would be good for American democracy and liberalism. Allies may not like that. They will complain of abandonment. But sacrificing America's liberal ideals at home to promote them abroad is strange brew. It is increasingly obvious that hegemony abroad is deleterious to American liberalism at home. Where allies can stand on their own, as South Korea very obviously can, US retrenchment would be domestically healthy.
In Part 2, Robert gave us four reasons why US forces should remain in South Korea:
South Korea, standing alone, might slide toward a semi-democratic national security state like Pakistan
This cost is almost never reckoned by those advocating withdrawal from Korea. Most advocates of retrenchment from Korea, such as Cato's Doug Bandow, assume Korea to be a stable market democracy that can carry the costs of a head-to-head competition with North Korea. This is so economically, but I am not so sure politically. For thirty years the 'republic' of Korea was more like a Prussianised barracks-state dictatorship than a republic, with one dictator, Park Chung-hee, who genuinely seemed like the Korean version of Mussolini (Park's repression was the big reason President Carter wanted to withdraw from Korea as part of his human rights emphasis in US foreign policy). So thorough-going was the McCarthyite propaganda of dictatorial Korea about the 'reds' to the north that many older Koreans will tell you they actually believed that North Koreans had red skin.
Long, enervating national security competitions, like those between Pakistan and India, or North and South Korea, are corrosive to democratic and liberal institutions. South Korea's dictators used to justify repression and illiberalism on precisely these grounds. It is a huge achievement for South Korea that it managed to create real democratic and liberal institutions. It would have been easy for South Korea to stay a militarised faux-democracy like Egypt today, or Turkey and Indonesia earlier on. A US withdrawal that pushed up South Korean defence spending to 7% of GDP might threaten the South Korean experiment with liberalism and democracy, one of especial importance in the future as an Asian model against the authoritarian 'Beijing consensus.'
This week Graeme Dobell rounded out his series on great Australian foreign policy speeches. His final pick was Prime Minister Kevin Rudd's speech to Peking University in 2008:
Mark the Peking University speech as a key moment when China's ruling dynasty began to realise that Australia's new prime minister would not be their Manchurian candidate. Instead, his intimate knowledge of China gave Lu Kewen an ability to say dangerous things; that he was saying them in Mandarin doubled the menace.
Rudd was speaking as China prepared for its great international coming-of-age party – hosting the Olympics – and as Beijing cracked down hard on any attempt by Tibet to catch the Olympic limelight. Rudd put his hand right onto that scorching subject.
The Prime Minister recounted his own journey to discover China, the history of Australia's relationship with China, and then started to move on to dangerous ground by talking about the many difficulties facing China – 'problems of poverty, problems of uneven development, problems of pollution, problems of broader human rights' – and the great impact China was having on the rest of the world. And then he started to offer suggestions and criticisms.
While we're talking about China, here's Julian Snelder hosing down suggestions that there might be some sort of climate change policy breakthrough for the world's largest CO2 emitter:
China indeed sees diplomatic and commercial opportunity in the global climate change carnival, but don't it to expect it commit to any hard targets.
Yet this very idea has been tentatively held out, both by a CASS professor suggesting a coal consumption cap at 4.5 billion tonnes in 2025, and by the Advisory Committee on Climate Change dangling a longer-term 11 billion tonne CO2-equivalent limit by 2030 (from 9.5 billion today).
But these were not official statements, and they were quickly disowned as such. Furthermore, there are a number of reasons to be cautious about any future 'breakthrough' on emissions caps.
China already mines 3.8 billion tonnes of coal every year, and Chinese coal alone accounts for 20% of all global CO2 emissions. On present coal use patterns, China is on track to belch almost half of the entire world's recommended maximum 'CO2 budget' of 32 billion tonnes of CO2 by 2030.
It would therefore take a wrenching change in China's economy to suddenly alter its trajectory of rapidly growing coal use.
And Vaughan Winterbottom on rising violence in China's northwest:
So why is violence spiking? I spoke with some of the foremost experts on Xinjiang to find out. Below are highlights.
Henryk Szadziewski, a senior research at the Uyghur Human Rights Project, discussed recent policy and personnel changes:
"It's a good idea to look at the unrest from a broader chronological perspective. Uyghur grievances with the Chinese state stretch further back than the recent uptick in violence. Wang Lequan was known for dealing harshly with Uyghur expression of dissent. Post-2009, the appointment of his successor Zhang Chunxian was supposed to bring a 'softer' approach to governance in Xinjiang.
Given the policies we see in effect today, it's hard to distinguish this 'softer' approach. Xi Jinping's announcement earlier this year that security policies would be emphasized over development was viewed as a palliative to unrest. Although the Second Xinjiang Central Work Forum this year proposed some measurable goals in addressing economic disparity between minorities and Han Chinese, especially in terms of reducing unemployment, the systematic and ingrained social discrimination faced by Uyghurs remains. As with many economic policies in the past, these goals have been imposed from above with little agency in decision making from Xinjiang residents."
On Monday the Lowy Institute hosted the launch of the Australian Government's 'economic diplomacy' policy. Alex Oliver explained the economic diplomacy agenda for Interpreter readers:
In the increasingly globalised international environment Australia now faces, this economic diplomacy agenda will be a complex one to prosecute: it implies a far greater role for non-government entities, particularly the private sector, and means a much greater involvement for the Australia's Department of Foreign Affairs and Trade in formulating and facilitating the Australian Government's approach to international trade and foreign investment.
Because economic diplomacy requires domestic policy settings which reduce barriers to trade, economic growth and investment, DFAT, along with its two ministers, will need to lead a whole-of-government, whole-of-society effort to achieve positive economic outcomes through diplomacy. As Ms Bishop described, the strength and uniqueness of this policy is that it aligns all Australia's international efforts – foreign policy, trade, tourism, investment and development – so that they are "pulling in the same direction."
Our debate on sea-based nuclear weapons and strategic stability continues. This week Rod Lyon argued that that sea-based nuclear weapons are indeed a strategic stabiliser:
I think there are important political gains to be derived from sea-based systems, and those might be more important than the strategic and technological ones. First, such systems suggest a commitment to a durable, resilient nuclear force. They suggest that resort to nuclear weapons needn't be — and won't be — a rushed decision. Second, they devalue the benefits to an adversary of a bolt-from-the-blue attack upon the land-based component of the force, usually sited in relatively static target sets. Third, because they make such an attack upon the land-based systems less likely, they help reassure the population of the nuclear weapon state that they aren't mere nuclear cannon fodder, and thus help sustain political support for the arsenal.
Iskander Rehman, conversely, stated that that a 'combination of dual-use platforms and doctrinal opacity could prove highly detrimental for crisis stability':
A common reading of the movement towards sea-based deterrence is that it provides a greater vector for strategic stability, not only by ensuring the relative sanctuarisation of nation's deterrents and thus reducing first-strike incentives on both sides, but also by displacing the locus of nuclear competition from heavily populated state territories to the wide open waters. This optimistic vision does not hold up to scrutiny, however, when applied to regional nuclear dynamics in the Second Nuclear Age. Indeed, in this particular case, one could argue that it is not so much the process of naval nuclearisation itself which is inherently stabilising or destabilising, but rather the manner in which it is being pursued. Pakistan seems to be taking a dangerous path which combines dual-use systems (nuclear-tipped cruise missiles), cultivated doctrinal ambiguity, and a fair degree of maritime brinkmanship.
There are, no doubt, numerous lessons that could be drawn from the Cold War, whose study unfortunately tends to be neglected or oversimplified in South Asia. During the second half of the Cold War, in particular, theorists warned that within a heavily nuclearised environment, and under conditions of strategic uncertainty, offensive submarine operations or deployments could give birth to dangerously escalatory dynamics. And interestingly, much as in contemporary Pakistan, this argument was countered at the time by a constituency that argued that the diversification — and resulting dispersal — of nuclear assets at sea both strengthened their survivability and buttressed overall deterrence.
Since we're on the topic of strategy, Peter Layton questions whether Australia still needs a new Defence White Paper, considering that many of the capability and budgetary decisions have already been made:
The missing element in all this is strategy. A word search for 'strategy' in the public consultation Defence Issues Paper finds the word only four times in the 65-page document.
In simple terms, strategy is the way that the force structure (the means) is used to achieve desired objectives (the ends). But making strategy is intellectually difficult, and not as much fun as buying new jets, ships and tanks! Devising the ends, and the ways to achieve those ends, is not easy. Giving advice to busy, harassed policymakers on how to develop strategy can be contradictory and confusing.
Even so, it is worth the effort. Good strategy can magnify the effectiveness of a nation's military power. Moreover, efficiency processes are best based around a strategy. The Army, for instance, wants to be quickly adaptable to new and emerging circumstances. This objective might be incompatible with the push for a stable, unwavering acquisition plan that industry can 'bank' on for the next two decades or so. In the absence of a strategy, incoherence is a constant danger.
Photo by Flickr user coddogblog.