US and Chinese Approaches to Nontraditional Security
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U.S. Naval War College U.S. Naval War College Digital Commons CMSI Red Books China Maritime Studies Institute 7-2012 Not Congruent but Quite Complementary: U.S. and Chinese Approaches to Nontraditional Security Lyle J. Goldstein Follow this and additional works at: https://digital-commons.usnwc.edu/cmsi-red-books Recommended Citation Goldstein, Lyle J., "Not Congruent but Quite Complementary: U.S. and Chinese Approaches to Nontraditional Security" (2012). CMSI Red Books, Study No. 9. This Book is brought to you for free and open access by the China Maritime Studies Institute at U.S. Naval War College Digital Commons. It has been accepted for inclusion in CMSI Red Books by an authorized administrator of U.S. Naval War College Digital Commons. For more information, please contact [email protected]. NAVAL WAR COLLEGE CHINA MARITIME STUDIES INSTITUTE Number 9 U.S. NAVAL WAR COLLEGE COLLEGE WAR NAVAL U.S. Not Congruent but Quite Complementary U.S. and Chinese Approaches to Nontraditional Security CHINA MARITIME STUDIES CHINA No. 9 Lyle J. Goldstein, Editor Not Congruent but Quite Complementary U.S. and Chinese Approaches to Nontraditional Security Lyle J. Goldstein, Editor CHINA MARITIME STUDIES INSTITUTE U.S. NAVAL WAR COLLEGE Newport, Rhode Island www.usnwc.edu/Research---Gaming/China-Maritime-Studies-Institute.aspx Naval War College The China Maritime Studies are extended research projects Newport, Rhode Island that the editor, the Dean of Naval Warfare Studies, and the Center for Naval Warfare Studies President of the Naval War College consider of particular China Maritime Study No. 9 interest to policy makers, scholars, and analysts. July 2012 Correspondence concerning the China Maritime Studies President, Naval War College may be addressed to the director of the China Maritime Rear Admiral John N. Christenson, U.S. Navy Studies Institute, www.usnwc.edu/Research---Gaming/ Provost China-Maritime-Studies-Institute.aspx. To request ad- Amb. Mary Ann Peters ditional copies or subscription consideration, please direct Dean of Naval Warfare Studies inquiries to the President, Code 32A, Naval War College, Robert C. Rubel 686 Cushing Road, Newport, Rhode Island 02841-1207, Director of China Maritime Studies Institute or contact the Press staff at the telephone, fax, or e-mail Peter Dutton addresses given. Reproduction and printing is subject to the Copyright Act Naval War College Press of 1976 and applicable treaties of the United States. This Director: Dr. Carnes Lord document may be freely reproduced for academic or other Managing Editor: Pelham G. Boyer noncommercial use; however, it is requested that reproduc- tions credit the author and China Maritime Studies series Telephone: 401.841.2236 Fax: 401.841.3579 and that the Press editorial office be informed. To obtain DSN exchange: 841 permission to reproduce this publication for commercial E-mail: [email protected] purposes, contact the Press editorial office. Web: www.usnwc.edu/press www.twitter.com/NavalWarCollege ISSN 1943-0817 ISBN 978-1-935352-04-4 Printed in the United States of America Contents Introduction, by Lyle J. Goldstein ................................................................................1 CHAPTER ONE The Role of NTS Issues in the China-U.S. Relationship ............5 by Yu Wanli and Xiao He CHAPTER TWO New Directions in Chinese Security Policy ...........................17 by Bates Gill CHAPTER THREE The PLA Navy’s Gulf of Aden Mission as Capability Building against NTS Threats ...........................................................27 by You Ji CHAPTER FOUR The PLA (Re-)Discovers Nontraditional Security ...................... 41 by Andrew Scobell and Gregory Stevenson CHAPTER FIVE Issues in the Transformation of China’s Engagement with International Peacekeeping ............................................................ 51 by Pang Zhongying CHAPTER SIX Chinese Peacekeeping in the Asia Pacific: A Case Study of East Timor ....................................................................65 by Lyle J. Goldstein and Kathleen A. Walsh CHAPTER SEVEN Lessons from Mumbai: Chinese Analysts Assess the Threat of Maritime Terrorism ........................................................77 by Sun Kai and Guo Peiqing CHAPTER EIGHT U.S. and Chinese Approaches to Peacekeeping and Stability Operations ............................................................87 by Dennis J. Blasko CHAPTER NINE On China-U.S. Relations and NTS Cooperation .................. 103 by Maj. Gen. Pan Zhenqiang, People’s Liberation Army (Ret.) CHAPTER TEN China’s Maritime Reemergence and U.S.-China Naval Cooperation in the NTS Domain ....................................... 117 by Kristen Gunness Abbreviations and Definitions ............................................................................... 130 About the Contributors ........................................................................................ 133 The opinions expressed in this publication are the perspectives of the authors and do not necessarily represent the views of the U.S. Department of Defense or any of its components or the views of the government of the People’s Republic of China or any of its components. All photographs obtained with permission from China Defense Forum. Introduction Lyle J. Goldstein .S.-China relations, difficult in the best of times, have lurched in a dangerous Udirection since 2009. Against the backdrop of a weakened global economy and sharpened ideological tensions, there has been a disturbing new atmosphere of crisis in East Asia over the last two years, with incidents occurring in greater frequency and sowing serious doubts about the sustainability of the “long peace” that this region has enjoyed for decades. Indeed, any one of the following incidents could have escalated into a serious regional crisis: the sinking of the South Korean frigate Cheonan; the collision between a Japanese coast guard cutter and a Chinese fishing trawler and the ensuing Chinese restrictions on the export of rare-earth minerals; and a string of confrontations between Chinese patrol ships and vessels from both Vietnam and the Philippines. Taken together, these incidents starkly illustrate the fundamental fragility of interna- tional security arrangements in the Asia-Pacific region and the troubling failure of the United States and China to adequately manage vexing regional challenges. In the United States and elsewhere in the West, the pervasive view is that Beijing is “feeling its oats”—eager to reap the strategic benefits of its dynamic economy even as Washington confronts major difficulties at home and abroad. Not surprisingly, Chinese observers are inclined to view these tensions differently. Difficulties with many neighboring states, such as Vietnam, are seen as encouraged and abetted by Washington, which is viewed as all too eager to exploit regional differences as a way to “contain” China’s rise. With- out significant course corrections in both capitals, the United States and China seem destined to follow the path of intensified rivalry that may even lead to the possibility of large-scale armed conflict. As Henry Kissinger has recently written, this path is “the road to disaster.”1 Facing such difficult circumstances, some observers in the United States are inclined to exert new and extraordinary efforts for the purposes of enhancing military deterrence. Aaron Friedberg, for example, argues that the “U.S. position in Asia must appear so strong and so resilient that Beijing will ultimately choose to stand down rather than risk everything.”2 By contrast, this assembled volume describes a much more hopeful and cooperative approach. Surveying global security over the last two decades, the collection makes it apparent that both sides of the Pacific frequently articulate surprisingly similar 2 china maritime studies security concerns—such as terrorism, the proliferation of weapons of mass destruction, piracy, environmental crisis, humanitarian disaster, ethnic strife, and economic disloca- tion—all of which are issues that sit under the “large tent” of nontraditional security (NTS) concerns. To be sure, traditional security threats remain a regional concern. But scholars, practitioners, and leaders in international security—including recently retired secretary of defense Robert Gates—are all focusing new energy on issues that are decid- edly different from classic strategies of interstate conflict and zero-sum outcomes.3 Un- fortunately, relatively few academic studies have fully explored the potential for overlap in American and Chinese interests with respect to NTS. An especially noteworthy contribution to the field of international relations and one that takes the U.S.-China cooperation problem with due seriousness is Michael Swaine’s recent America’s Challenge: Engaging a Rising China in the Twenty-First Century. Ac- cording to Swaine, “America’s strategy toward China will need to place a much greater emphasis on cooperation instead of rivalry.”4 Moreover, Swaine argues not only that NTS cooperation between the United States and China could build the trust necessary to tackle more challenging problems but also that “without strong U.S.-China cooperation, such transnational threats will prove virtually impossible to manage.”5 Thus, successful U.S.-China cooperation is not simply imperative for Asia-Pacific security but will also be key to global governance more generally. The present volume reflects a commitment to develop international maritime coopera- tion between the United States