Feature Photo: Chengdu Global Center is the largest building in western China. It contains a mall, hotel, conference center, and water park.
Chengdu, the capital of Sichuan province in south-central China, is a lighthearted community. Famous as the home of the Giant Panda conservation program, Chengdu occupies an important place in the heritage of greater China. The attractive and prosperous city is also known for the beauty of its women, the spicy heat of its food, and the self-effacing sense of humor of its inhabitants. They will need it. In many ways, Chengdu is a microcosm of China’s rise and may also serve as a canary in the coal mine should the country’s experiment with capitalism begin to fall apart.
Founded during the warring states period by Lord Kaiming as a capital for his dominion, Chengdu means “Becoming a Capital.” With 15 million inhabitants and 3.87 million cars, the youth there sarcastically refer to it as “Becoming a Carpark.” The city’s traffic is indicativeof the transformation that has affected China as a whole. Since the 1980s, an entire generation of rural Chinese has migrated to the cities looking for work in the new economy. Their flight has emptied the countryside, changed family dynamics across China, and forced a residential construction boom like the world has never seen. In Chengdu, the pace of change is so astonishing people joke they sometimes go to work in the morning and get lost on the way home because everything changes so quickly. The joke is not far from the truth.
Growth and Prosperity
The rapid transformation of China from a rural Communist backwater in the 1980s to the economic powerhouse of today is arguably the single greatest human endeavor since the Second World War. Since 1978, an estimated 800 million Chinese people have been lifted out of extreme poverty. China’s adult literacy rate in 2012 was 95.1% and climbing with youth literacy reaching 99.65%. Its infant mortality rate dropped from 4.2% in 1990 to 1.2% in 2012. Life expectancy in 2012 was 75.2 years, up from 69.5 years in 1990. Gross Domestic Product (GDP) per capita increased an average of 9.3% annually from 1990. In the space of a single generation hundreds of millions of Chinese citizens stopped having to worry about survival and became concerned about enjoying life. A Chinese version of the American Dream took hold in which young couples marry for love, own their own homes, and expect to retire comfortably without dependence on their children. This “Chinese Dream” once ignited, cannot be extinguished without calamity, forcing Beijing to seek resources to satisfy its growing industry and appetite for consumption.
China’s political aspirations have risen with its economic power. There is a sense at every level of Chinese society that after centuries of shameful disunity and perceived exploitation by outsiders, it is finally time to reclaim China’s place at the “center of the universe.” An air of inevitability and a disregard for short-term consequences now permeates Beijing’s foreign policy, but China lacks the cool confidence exhibited by Japan or Thailand, the only two Asian nations that were never colonized. Instead, China bullies its neighbors with incomprehensible urgency. Shamelessly and without hesitation, Beijing attempts to divide and conquer in political and economic matters, raising the level of uncertainty in the region and leaving little doubt it act militarily if required. East and Southeast Asia are regrettably vulnerable to this approach, leaving only the Association of Southeast Asian Nations (ASEAN) and the US system of alliances to thwart Chinese hegemony in the region. In this way, the US Navy’s 7th Fleet is the ultimate regulator of China’s military, economic, and political aspirations—and this makes Beijing restless.
In response, China’s military expansion is almost as astonishing as its economic growth. Since 1989, the budget of the People’s Liberation Army (PLA) has increased an average 9.56% per year though some estimates put the figure much higher. China has the luxury of focusing its military efforts against a single paradigm: the United States Military. In pursuit of parity, the PLA has acquired nuclear weapons, carrier and stealth aviation, modern command and control systems, submarine-launched ballistic missiles, and special operations capabilities. Some believe the Chinese may actually lead the world in cyber, anti-ship ballistic missile technology, and even quantum computing—a capability that could obviate any attempt at communications security. Though the United States Military is a large and robust rival, China’s drive for parity requires only that it learn from the Pentagon’s successes and avoid its mistakes. Accordingly, Chinese officers miss no opportunities to study America’s weaknesses and develop countermeasures. For them, parity is only a matter of time and persistence, something the Chinese are more comfortable with than Americans are. It is not surprising then that the PLA is not just a military force, it also carries political and economic weight within the Chinese system.
China’s Future: Unite or Ignite?
Unfortunately, China simply cannot sustain the economic growth required to keep it all going. The problem is dire. Even a moderate reduction in the pace of growth will profoundly affect tens of millions of workers. If a contraction stratifies and unbalances China’s economy, the country’s fractures will begin to re-emerge. Income and quality of life will become a matter of struggle between ethnic groups and geographic regions. China’s coastal cities are extremely important to its economy; those in the interior are less so. Profound cultural differences exist between those from the north and those from the south as well as between east to west. Xinjiang and Tibet already dream of an independent future as do some in Hong Kong and of course Taiwan. Igniting rebellion in these places requires only a spark. More profoundly, if the Chinese economy stagnates, there is simply no way to keep 600 million military aged men busy, unified, and politically obedient without expansion and conquest. Economics may thus force China to decide between conflict at home and conflict abroad.
China’s Communist Party leadership is already preparing for this eventuality. Efforts to control information and stamp out dissent serve to inoculate the country against the centrifugal forces that threaten to spin it apart. The PLA appears to have three principal goals: develop a power projection capability, use that capability to solidify control of energy supply lines, and build positive relationships with the Chinese people through disaster response. China recognizes it will need all these things if it decides to embark on a policy of conflict overseas. Though at the moment Beijing pushes its territorial ambitions incrementally, it openly experiments with hard power solutions in the South China Sea, the East China Sea, and elsewhere. Any disruption in the quality of life in Chinese cities like Chengdu may provide an early warning as to whether Beijing will militarize its foreign policy. In the lengthening list of things that Chengdu is becoming, perhaps “canary in the coal mine” is the most significant.
Since the end of the Second World War, Europe has put its security in the hands of supranational organizations. These institutions, whether economic, military, or political, have deterred the wars between states that plagued European security since the Peace of Westphalia in 1648. In that period, the march of uniformed armies decided conflicts and knowing where those armies were and how they were deployed was paramount to victory. For this there is no more powerful tool than an eye in the sky; satellite imagery in the hands of western governments. But today’s security challenges seem to invalidate collective intelligence systems.
Threats today are insidious. The massed armies of old have given way to environmental degradation, terrorism, and “hybrid” military threats designed to operate in the seams within Allied decision-making. Big states like France, Great Britain, and particularly the United States, hold a monopoly on imagery intelligence (IMINT) and distribute it through Allied intelligence structures at NATO and the European Union. With NATO’s Afghanistan mission winding down and a Euroskeptic administration in the White House, the old model of sharing IMINT is no longer flexible, responsive, or reliable enough to address the modern security needs of most European states.
A Transitioning Reality
The end of 2014 marked the transition from NATO’s United Nations-mandated International Security Assistance Force (ISAF) in Afghanistan to Operation Resolute Support. The new mission focuses on building the capability of Afghan structures through training and financial instruments. These efforts are funded via the Afghan National Army (ANA) Trust Fund, the United States Afghanistan Security Forces Fund (ASFF), and the Law and Order Trust Fund for Afghanistan (LOTFA). The reduction of western troop levels and the primacy of Afghan institutions that cannot meet strict and expensive requirements for access to Allied intelligence, has reduced the urgency that previously drove the sharing of IMINT within NATO.
The election of Donald Trump may further restrict cooperation within NATO. During his first one hundred days as President of the United States, the Trump Administration made it clear it expects its NATO allies to increase their contributions to the organization. Though this is poorly defined and President Trump appears to be softening his position, intelligence sharing is not likely to increase during his administration leaving European allies to consider available options. Fortunately, advances in technology and the genius of the free market have generated alternatives in what was previously locked in the rarified world of classified military technology.
Commercial satellite solutions have come a long way since 1962 when the first privately sponsored mission sent the Telstar communication satellite into orbit. Today, high-resolution commercial earth observation and advanced geospatial solutions are useful across the many sectors of defense and intelligence, public safety, map making and analysis, environmental monitoring, oil and gas exploration, infrastructure management, and navigation. These options are inexpensive and rival legacy military capabilities in terms of resolution and coverage. When coupled with geographic information systems and internet technologies such as cloud computing and database management, commercial satellite imagery is a powerful tool in the hands of a growing community of potential clients.
Outlook for the Future
The Brexit referendum in the United Kingdom as well as the strong showing of nationalist parties in France, the Netherlands, Hungary, Poland, Greece, Turkey, and the United States are making it harder to implement complex supranational intelligence sharing arrangements. Terrorist attacks and the continuing influx of economic migrants and refugees continues to fuel growing discomfort with the risks inherent in “open door” policies. In this time of crisis, intelligence services, militaries, and police forces are under increased pressure to provide security and have already begun exploring unilateral solutions to the problem. Their task will be impossible however without the right tools for the job.
Dictatorship and socio-economic bias have left Latin America home to some of the most corrupt nations in the world. Despite the continent’s recent relative success in economic development and securing regional trade agreements, 20th century political scourges still haunt many Latin American nations and Paraguay is no exception. For 35 years the nation endured a period in which popular peaceful dissent was met with the strong-arm of the military. Extralegal arrests and humans rights abuses were commonplace, and the housing of Nazi war criminals was an accepted practice. Paraguayan President Horatio Cartes’ renewed bid last week for re-election risks forfeiting the strides made towards real democracy over the past decade and may force the government back into political crisis.
While Paraguay’s political future remains in doubt, the facts surrounding the events of the 31 March are not in dispute. A majority group from the Senate and a hand-full of opposition senators met secretly to cast a majority vote to put into motion the first steps necessary to amend the Paraguayan constitution. The amendment would enable President Cartes to seek a second term in contravention of the single-term limit originally imposed to bolster Paraguay’s democratic processes. The proposition could further entrench Cartes’ Colorado Party that has enjoyed a majority in the legislature for 66 of the last 70 years. After 35 years of despotic rule by dictator Alfredo Stroessner, the people of Paraguay were outraged by this legislative “coup d’etat” which sparked a protest at the Congressional building in Asunción.
In the melee that followed, a large portion of the building was gutted by fire and Rodrigo Quintana, the leader of the Liberal Party’s youth branch, had been shot dead. The details surrounding the incident are dubious, if not damning. Quintana was shot and killed in a violent police raid on the Liberal Party’s Youth Branch political headquarters. Security footage shows Quintana running away from the police. After absorbing the deadly shot, an officer now identified as agent Gustavo Florentin approached and stepped on his body. Florentin has since been fired, along with the interior minister and Paraguay’s police commander, Crispulo Sotelo. While these dismissals direct blame towards the police for an inability to protect Congress and the public, the truth is this action by President Cartes was more preventative than altruistic. The calculated move precludes the possible violent reaction from an already agitated opposition but the risk of repeated violence endures until negotiations surrounding the amendment begin and until transparent government investigation of the police raid lifts the perception of impunity.
A Vote Against Confidence
The Colorado party will likely argue that the vote was an inadvertent procedural violation of legislative etiquette. The opposition, along with the neighbors and trade partners, will view the covert legislative action as a power grab and a sure indicator that a corrupt polity is leading the small land-locked country backward in already uncertain economic times. A procedural violation can be dealt with within the democratic process, but a substantive and willful disregard for democratic governance spells a disastrous outcome.
To understand the level of risk being taken and the importance of the upcoming events, one needs only to look at who responds and what is said. Immediately after the violence, President Cartes downplayed the events in a letter to the people of Paraguay. In the third paragraph he writes: “Democracy is not conquered or defended with violence and you can be sure this government will continue to put its best effort into maintaining order in the republic…we must not allow a few barbarians to destroy the peace, tranquility and general well-being of the Paraguayan people.” His cavalier statement was met with disdain by the United Nations Office of the High Commissioner for Human Rights (OHCHR), which quickly issued a pointed cautionary statement calling on political leaders “to avoid inciting violence and seek dialogue.” Although innocuous at first glance, the OHCHR statement avoids addressing the protestors or their actions and instead directly engages political leaders for “inciting violence”.
The Paraguayan Congress remains shut down while fire inspectors assess the damage. With a populace fighting widespread corruption of government officials, broken promises for rebuilt infrastructure, and frustration over lack of progress, even Asuncion’s own mayoral race was lost to the opposition party. Pope Francis of neighboring Argentina has called for immediate dialogue between opposing parties and President Cartes has heeded the advice, recommending to the lower house (presumably pro-amendment) to delay until the factions could discuss a way forward for the initiative. Opposition leader Efrain Alegre objected, pending a comprehensive investigation into the events surrounding Quintana’s death. The bipartisan call to delay the vote, originally scheduled for April 4th, further obscures the path forward and and tensions continue to rise. Further delay could unravel an uneasy peace maintained since Cartes assumed the Presidency in 2013.
Despite all evidence pointing to the impossibility of withdrawing the proposal and annulling the clandestine senate vote, there is still a chance that diplomacy and influence from neighboring countries could prevail. Since President Cartes’ election, Paraguay has experienced a surge in economic growth, making it one of South America’s fastest growing economies. This glimmer of hope would lead one to believe that the Colorado party should abandon the measure and seek a strong replacement for Cartes in 2018, restoring peace and trust in a nation still racked with fear of a return to despotism. The unfortunate truth is that the prospect of political gain and notoriety is alluring, and the risk to the political certainty of the country is high. The most promising course of action towards maintaining peace would be for Cartes to go against the majority, adhere to the current constitution, and eliminate himself as a candidate in the next election. This also appears the most unlikely scenario, as it would put an end to the right-wing preeminence that the Coloradan majority has enjoyed for decades.
Point of Inflection
In the absence of immediate and powerful diplomatic intervention or reversal by Congress, Paraguay faces a crossroads in which violence and freedom could become interdependent. The lower house will, if allowed to vote, pass the measure and send the constitutional amendment to the President for approval. If the recent violence following the initial vote is any clue to how the opposition will react, the ensuing fear and anger will undoubtedly thrust this tiny nation into a state of complete chaos. The ingredients exist for a violent implosion: a new police commander, a new interior minister, complete right-wing control without term limits, and a populace that has tasted freedom and democracy even if only for a brief period of time.
The upcoming weeks are crucial for determining the future prospect of peace and economic growth, both for Paraguay and for greater Latin America. Absent any legislative reversal on the initiative, the nation is on a collision course. The tragic and too-familiar possibility of a counter-revolutionary dictator rising from the ashes is greater now than at any point since Stroessner’s final days in 1989.
Major Kirby “Fuel” Sanford is a U.S. Air Force F-16 Instructor Pilot with combat experience in Syria, Iraq, and Afghanistan. He is currently a master’s student in Buenos Aires, Argentina as part of the George and Carol Olmsted Scholar Program. The views expressed in this article are those of the author and do not reflect the official policy or position of the U.S. Air Force, the Department of Defense, the U.S. Government, or the Olmsted Foundation.
On the morning of 14 February 2017, a grainy closed circuit television video shows a middle-aged Korean man striding casually into the Low Cost Carrier Terminal (LCCT) of Kuala Lumpur International Airport. He is approached from behind by a young woman in a white t-shirt and blue skirt and in a flash she throws a cloth over his face to administer a lethal dose of a colorless, odorless liquid. The victim, Kim Jong Nam, is the estranged half-brother of North Korean leader Kim Jong Un. He did not yet realize he was already doomed; assassinated by unknown assailants wielding an unidentified chemical weapon. The ongoing international manhunt that followed revealed the greatest strengths of the storied Royal Malaysian Police Special Branch and the brutality and skill of the North Korean intelligence service. The incident also strained relations between Pyongyang and one of the few countries in the world with which it enjoys normal relations.
The brazen murder also captivated millions and brought a shadowy underworld briefly to the surface. What is not apparent to most is that last week’s dramatic events were not a lucky strike by clever opportunists, they were the end result of a sophisticated intelligence operation – actually several separate operations – spanning multiple countries and likely involving dozens of intelligence officers and their agents. (In the professional jargon of the intelligence community, an agent is someone recruited by an intelligence officer.) Coordinating their activities to achieve the final spectacular, and previously impossible result is the real art behind the assassination.
The Cat and the Mouse
Once considered a likely successor to his father, Kim Jong Il, Kim Jong Nam was passed-over following a careless indiscretion and went quickly into exile while his younger sibling thrashed about in the tense early days of his rule. Despite great doubt about his ability to muster the ruthlessness required to retain power over the isolated country, Kim Jong Un quickly consolidated his hold using imprisonment and death to control anyone presenting the slightest political threat. In an environment where even kinship was less important than loyalty, Kim Jong Nam was bound to be targeted even if he had not made statements questioning the stability of his brother’s regime.
The elder Kim withdrew deeper into a dark exile after his father’s death in 2012. In China and Macau he was assumed to be under state protection and travelled under numerous aliases. He had already survived at least two attempts on his life and reportedly begged his half-brother to spare his life and that of his family. His final minutes in Kuala Lumpur were a bizarre drama. After being assaulted by the woman in white, he was initially treated at an airport clinic before being evacuated by ambulance to a local hospital. He died en route, just as police were beginning their hunt for his alleged attackers, an Indonesian girl – Siti Aisyah – and a Vietnamese national, Doan Thi Huong, the now infamous woman wearing the coldly ironic “LOL” t-shirt.
After her attack on Kim Jong Nam, CCTV footage shows Doan calmly leaving the scene and catching a taxi outside. Despite having just administered a lethal dose of an unknown chemical, she displayed no concern for her own safety and wore no obvious protective equipment. She had clearly practiced the sequence. Both Doan and Siti Aisyah later told police separately they believed they were taking part in a made for television prank. But Doan’s actions in the 48 hours prior to the attack suggest she had received some training in tradecraft. During that time she stayed in three hotels in the immediate vicinity of the airport and paid cash for her lodging. At one point she borrowed a pair of scissors and cut her hair, leaving the remnants in the trash can in her room. Her activities during the day are just coming to light but are now known to have included numerous rehearsals and examinations of the target area; possibly in conjunction with Siti Aisyah. These are classic, if clumsy techniques to avoid detection and rehearse the operation. They certainly signal a nefarious intent.
The Art of Assassination
To the casual observer, Kim Jong Nam’s death may seem like the handiwork of a couple clever and highly trained operatives. The reality is that intelligence operations of this kind are highly choreographed, involve dozens of actors, and are compartmented for security. Assassinating Kim Jong Nam required at least five, and as many as seven separate operations managed by seven or more intelligence officers with perhaps dozens of agents in Macau, China, Malaysia, Vietnam, and Indonesia. The overall operation likely consisted of the following supporting operations:
Recruit the assassins. Siti Aisyah was recruited in Indonesia. Doan may have been recruited in Vietnam.
Determine Kim Jong Nam’s travel plans. Doan was aware of Kim Jong Nam’s travel plans at least 48 hours prior to the attack. She used this time to rehearse and to complete her reconnaissance. Information gleaned from his social media feed is not reliable enough for this purpose and had to be corroborated with direct knowledge from intercepted communications or recruited agents in a position to provide assured access to his itinerary.
Report Kim Jong Nam’s movements. The attack required very precise information about his flight, his mode of transportation, his likely arrival time at the terminal, the gate/check-in counter for his flight, what he was wearing, etc.; all of which had to be communicated to the assassins in a timely manner. A botched operation would have been far too damaging to leave this to chance. This could have been as simple as a phone warning from his hotel but doing this reliably requires layers of mobile and static surveillance at the hotel, the airport, and his many residences.
Deliver the chemical. The chemical used to kill Kim Jong Nam was smuggled into Malaysia or manufactured locally. It likely required special skill to make and specific equipment to store and administer. For Security, Doan would have received the chemical secretly and been trained in its use at the last possible moment raising the risk it could have killed bystanders or the assassins themselves.
Observe and report the outcome. Though this could have been conducted overtly through North Korean diplomats and/or monitoring of the press, it is a critical piece. At a minimum, Doan needed to report her task complete or a separate observer had to be in place at the scene to do so. Emerging information suggests this was the task of the four North Korean nationals still sought by Malaysian police.
Though it was possible to conduct some of the supporting operations above clandestinely, meaning the operations themselves remain hidden, the politically explosive death of Kim Jong Un’s half-brother could never be kept secret and therefore had to be done covertly, meaning the sponsor’s hand remains hidden. A covert operation is much more difficult to execute than a clandestine one and requires layers of separation between intelligence officers and their agents that are typically not highly trained operatives. Agents are deniable and sometimes coerced. Occasionally they do not know whom they are working for or even that they are working for someone at all.
As an additional security measure, the supporting operations would be kept completely separate. The risk of detection is highest when these operations come together through communications or physical contact, meaning the moment of greatest vulnerability was during the attack itself when all the pieces were brought together in time and space. At that point, all the complicated designs of the North Korean regime rested on the element of surprise and the skill and demeanor of half-trained agents.
Ultimately, the assassination of Kim Jong Nam was a well-planned and skillfully executed intelligence operation, but the Royal Malaysian Police Special Branch is untangling the knot with great efficiency. With its roots in the long, difficult fight against Communist insurgency, Special Branch is a tough adversary in the ongoing spy game. Known locally as SB, Special Branch serves as both the internal and external intelligence service of the Malaysian state. They enjoy good relationships with counterparts in the region and are receiving excellent mutual support from Malaysia’s Foreign Ministry which is aggressively setting the conditions for international cooperation in the investigation. Though culpability for Kim Jong Nam’s death may never be fully proven, SB has managed to minimize political damage to Malaysia and imposed a high cost on North Korea. With the dust still settling, only Kim Jong Un himself can say if his brother’s murder was worth the resultant damage to relations with Malaysia and the increased suspicion that the operation has inspired around the world.
Russia has been fighting a war on Ukrainian soil since its “little green men” took over the Parliamentary building in Crimea in February 2014. The ongoing conflict, triggered by the flight of the Russia-backed President of Ukraine, has been very costly in human terms. The United Nations Office of the High Commissioner for Human Rights (OHCHR) estimated in a 2016 report that approximately 16,000 people have been killed or injured and around 2.8 million displaced by the fighting that continues despite two ceasefire agreements (Minsk I and Minsk II).
Even if the Minsk agreements are fulfilled, Ukraine will continually be at risk of Russian invasion. Kiev has very little control over its 1200-mile border with Russia and after years of neglect of its armed forces, Ukraine is at a great disadvantage relative to its large and well-armed neighbor. Clearly ignoring its previous commitments, Russia continues using its proxies to destabilize Ukraine’s eastern Luhansk and Donetsk regions and to maintain a corridor to Crimea.
In response, the United States and NATO have committed more than $600 million in non-lethal security assistance to Ukraine. This assistance includes training, advice for defense reform, and, according to the White House, defensive systems such as “counter-artillery radars, secure communications, training aids, logistics infrastructure, information technology, tactical UAVs, and medical equipment”. NATO provides advisory support, defense reform assistance, defense education, demining operations, and explosive ordnance disposal, and has created five trust funds to support Ukrainian defense. In addition, the US and Ukraine conduct two joint military exercises each year: SEA BREEZE and RAPID TRIDENT.
Russia’s actions and the collective response to it have led to a vigorous debate in western capitals about whether to respond by arming Ukraine. In 2015, citing an increase in ceasefire violations, a conglomerate of authors from three prominent US think tanks issued a report calling for the US to supply Ukraine with light anti-armor missiles and to give Ukraine three tranches of $1 billion in military assistance in 2015, 2016, and 2017. The Obama Administration, along with leaders of France, the UK, and Germany, opposed this course of action, but the apparent failure of non-lethal western aid to end the fighting is reenergizing some in the US Government to call for lethal assistance.
The Cost of Russian Aggression in Ukraine
Arguments in favor of arming Ukraine with defensive/offensive weapons emphasize security guarantees for relinquishing its nuclear arsenal under the 1994 Budapest Memorandum. Despite a Russian tendency to probe the international community for resistance before making risky decisions, the underwhelming response by the US and EU to Russia’s invasion of Georgia in 2008 set a precedent in which the West settled for a frozen conflict. Proponents of arming Ukraine contend the West needs to send Moscow a clearer message about its involvement in former Soviet republics and the near abroad, a region Putin deems is his area of influence.
Additionally, Russia has been a participant in acts of war as well superficial attempts at peacemaking in Ukraine. Over the last three years Russia brokered ceasefires in conflicts to which it is a party and then violated those agreements for political purposes. This duplicity undermines international rules and norms and amplifies the security dilemma with many post-Soviet and Eastern European countries.
To those in favor of arming Ukraine, sanctions seem an ineffective way to alter Putin’s behavior despite a Russian economy in decline from falling oil prices. Russia’s naval base in Sevastopol, Crimea, one of only two warm water ports to which it has access, is strategically significant due to the presence of untapped oil and gas reserves off the coast. Russia has already illegally taken control of Crimean oil rigs and Putin may believe he needs a “land bridge” to the peninsula that would traverse East Ukraine through Mariupol. Lastly, Russia relies on defense manufacturing in the region that was once part of the Soviet Union’s sprawling defense sector.
To many, the arming of Ukraine is a logical next step in trying to force Putin to resolve the issue diplomatically. French and German leaders made numerous unsuccessful attempts to obtain a ceasefire and an agreement to end the conflict while the Americans brought violations of Ukraine’s territorial integrity to the UN Security Council as required by the Budapest Memorandum. Despite this, militants in East Ukraine have denied access to, threatened, and even fired upon OSCE observers. This blatant aggression seems to confirm the notion that Putin only understands force. Some observers cite recent research suggesting Russia uses tactics of bluster for political purposes and avoids risk in foreign policy endeavors. Western assistance through lethal defensive weapons could increase the risk level for Russia and help to call Putin’s bluff.
A History of Tepid Solutions
German Chancellor Angela Merkel and the leaders of the UK and France oppose the idea of arming Ukraine. They note the importance of maintaining a coordinated response to Russian aggression to give validity and legitimacy to the West’s Russia policy. However, there will be difficulty obtaining consensus among all 28 EU member countries. Sanctions are a historical point of contention for economic reasons and because some countries are more reliant on supplies of Russian gas than others. Furthermore, arming Ukraine could prompt Putin to escalate the conflict, giving him a pretext for sending Russian troops overtly into Eastern Ukraine in much the same way he invaded Georgia in 2008. These points aside, if any further escalation by Russia is not dealt with forcefully by the US and EU, it would be a blow to western credibility and invite further Russian aggression.
The state of the defense sector presents a vulnerability for Russian aggression and an important opportunity for further western defense assistance. In 2016, the Poroshenko administration created a comprehensive plan for reforms based on detailed Rand Corporation recommendations for restructuring and strengthening the security and defense sector. Also in 2016, a former director of the US Defense Advanced Research Projects Agency (DARPA) became a special advisor to Ukrainian defense company, Ukroboronprom, for long-term development. While the industry is beginning to modernize and restructure, it remains relatively dilapidated with a distant prospect for tangible progress. The restructure of the Defense Ministry and General Staff of the Armed Forces of Ukraine, for instance, will not likely be completed prior to 2018.
Strengthening the Western Stance
The US and EU must determine realistic objectives for their actions. Bellingcat, an open source analytical organization that uses satellite imagery in investigating war zones, recently issued a report detailing what they purport to be evidence of cross-border shelling by the Russian government against Ukraine in 2014. Despite this, the West continues to accept the Russian argument that it does not need to be a signatory to ceasefire agreements or be held accountable for violating them. This charade is symbolic and useless at best; flippant and insulting to the West at worst.
Arming Ukraine with defensive weapons, a continuation of US policy under the Obama administration, seems to be the most prudent decision vis-à-vis Russia’s actions and the current state of Ukraine’s defense sector. However, for Ukraine’s long-term viability it may make more sense for the West to promote Ukrainian defense by advising and supporting the restructuring of its defense industry. Still, it is not enough. Aggressive and determined Russian actions in Ukraine require a definitive US strategy and better coordination with Europe, both of which are currently lacking. Until the West can settle the debate about how best to arm Ukraine, the fighting will continue on Russian terms.
Heather Regnault is a Ph.D. Student in International Affairs at Georgia Institute of Technology with experience in Kyiv, Ukraine. This article in no way represents the views of Georgia Institute of Technology, or the Faculty of the Department of International Affairs.
Hybrid Warfare is the stuff of nightmares for the military and political leadership of NATO. Ambiguous and hard to detect, it falls short of NATO definitions of armed conflict and therefore below thresholds on the decision to use force against it. Hybrid Warfare can be described as a plausibly deniable attack by a state using all its tools of national power to achieve a political result, as opposed to conventional warfare in which the state takes military action overtly and directly.
Allegedly employed by Russia against the Crimea in 2014, Hybrid War was intended to resemble a grassroots response by an ethnic Russian minority oppressed by the Ukrainian government. In reality, the Crimean campaign, like all Hybrid Warfare, required specific conditions for its success and great preparation to guarantee its effectiveness. It is not reactionary, it is revolutionary, and it is a foreign policy tool of the Russian state.
But Hybrid War as seen in Crimea — and later in the Donbass region of eastern Ukraine — is not new nor is it unique to Russia. Other states and non-state actors have used similar tactics to overthrow governments in the past and they will do so again. What makes the Crimean case especially troubling is that it was used to carve off a piece of a state rather than overthrow its government entirely. This precedent opens a large number of sub-state trouble spots globally to new and tempting possibilities. Nowhere is this more relevant than in the South China Sea where many of the requisite conditions exist for Hybrid War to succeed in the hands of China, which has gone a long way towards developing the mindset and the tools required to wrest control of relevant pieces of territory from its neighbors.
Any responsible discussion about Hybrid Warfare should begin with a definition. Unfortunately the NATO heads of state and government began using the buzzword to describe policy responses to Hybrid War before the Alliance had time to define the term. The result is a broad spectrum of seemingly disparate Allied and national activities designed to counter Hybrid War. Everything from the American deployment of a tank brigade in the Baltic states to establishment of a Strategic Communications Center is described as a counter to the Hybrid threat.
Terrorists are said to use Hybrid tactics, and naval vessels and fighter planes are training against Hybrid War scenarios. It seems at times to be the embodiment of a “something must be done” defense policy — a damaging and self-defeating knee jerk. In some ways however, NATO’s broad response may actually be appropriate.
Canadian scholar Paul Taillon argues Hybrid War is simply a new manifestation of the Soviet concept of “political war” more commonly known as “active measures”:
‘a forceful expression of national policy that forces a nation state to submit by eroding its will and capability‘, active measures include a ‘spectrum of politico-military stratagems including, among other things, employment of overt and covert operations, agents of influence, subversion, special operations, propaganda, foreign-policy manipulation, deception, and psychological operations, as well as orchestrating the support of foreign elements to act as proxies‘. (Taillon 2014)
Though the force of choice for implementing these stratagems on foreign soil are Special Operations Forces (SOF), the stratagems themselves are mostly political tools supported by very carefully controlled military operations and not the other way around. Victory however is not assured. These stratagems depend on pre-existing conditions or weaknesses in the targeted society: “resistance potential.”
Though never specifically defined, the basic conditions of resistance potential are not difficult to deduce. First and foremost there must be a disaffected community with an identity distinctly different from the one in power. The disaffected must have a communal grievance and a geographic concentration that links their identity and grievances to the terrain. Critically, success in Hybrid Warfare requires weak governance in targeted areas, particularly in matters of security. In this way, corruption, lack of resources, and uneven wealth distribution become important aspects of resistance potential. Though these conditions are more or less easily identifiable, measuring them in order to effectively allocate and prioritize resources is a fine art that requires great experience and cultural understanding. In other words, Hybrid Warfare works best between neighbors.
Resistance potential was high in the Crimea in 2014 where the ethnic-Russian community comprised 67% of the population. Though Russian speakers comprise only 17.3% of Ukraine’s total population,they had a distinct geographic concentration in the Crimea and the cities of the Donbass where they had latent but well-known grievances setting them apart from those in power in Kiev. They felt threatened by the transfer of political rights to the growing Muslim Tatar population, and had concerns about linguistic marginalization. Their general disconnectedness from the central government forced Kiev to rule through local structures. In addition to the Crimean Parliament, which implemented wide autonomy under the Ukrainian constitution, the Tatars also had their own governing council called the Mejlis. By comparison, Kievan governance seemed remote, filtered, and corrupt.
Even with such a seemingly clear-cut case of high resistance potential, Russia required most, if not all of the active measures stratagems to achieve its desired political result. Shortly after the Maidan Uprising that ousted then-President Yanukovych of Ukraine, masked, uniformed, and mysteriously well-armed troops began occupying government buildings across Crimea. The uniformity, professionalism, high-tech equipment, and coordination strongly suggested they were more than pro-Russian Crimean self-defense forces as they were described by Russian news sources. Supported by crowds of Russian-speaking thugs, these forces systematically dismantled the tools of Ukrainian state sovereignty in Crimea, blocked a Ukrainian military response, installed pro-Russian politicians (many with known links to Russian organized crime), and hastily arranged a Crimea-wide referendum on whether to declare independence or simply “rejoin” Russia. Emboldened by — or perhaps intimidated by — a Russian authorization to deploy troops to “Ukrainian territory” to protect vulnerable ethnic Russians, voters approved the referendum to rejoin Russia with a 97% majority before any international observers could arrive to verify the results. The true legality of the situation may never be known as Crimea is now effectively a part of Russia which claims, however implausibly, its actions were a defense of the self-determination of peoples.
To be certain, Russia has used more aggressive tactics in similar situations in the past. The 2008 invasion of Georgia is just one example, leading us to ponder why, if Ukrainian governance was so weak in Crimea, Moscow used Hybrid Warfare there instead of the more muscular actions applied in South Ossetia. The reason of course, is Ukraine’s physical and political proximity to NATO made any overwhelming use of conventional force by Moscow a potential threat to the Alliance. The imprecise calculations of deterrence politics so close to NATO’s Article 5 frontier meant the seizure of Crimea had to fall well below the Alliance’s decision thresholds for the use of military force lest Russia’s actions provoke an overwhelming defensive response by Brussels.
When so much of Hybrid War’s success or failure relies on the manipulation of perceived identity and grievance, it is nearly impossible for any government, let alone a large and diverse 28-nation alliance, to be completely certain of the legal appropriateness of using force. It is precisely this ambiguity and the incremental, arguably legal nature of Hybrid stratagems that makes them effective and attractive as a foreign policy option.
Divide and Confuse
Thoughtful observers of global security are naturally alert for signs Hybrid Warfare is proliferating from its home in Crimea to other parts of the world. There is certainly no shortage of resistance potential as stateless nations and disaffected minorities everywhere find their voices amplified by the internet. As long as there is potential for resistance, relevant actors — state and non-state — will maintain a capability to exploit it using Hybrid Warfare. Among these are the United States and China which both maintain organizations trained and equipped to use the stratagems of active measures. In China, Hybrid War is the domain of the Fisheries Law Enforcement Command, the Coast Guard, and an organization called the Maritime Militia which has an ambiguous legal status linking it to both private industry and the military.
Having capability however, does not prove it is being used for Hybrid Warfare and even if it is, proving that its use is somehow connected to Russian success in Crimea is another matter entirely. Knowing this and scanning the world for Hybrid War, our eyes continually return to the area where the two Hybrid superpowers collide: the South China Sea.
The South China Sea is one of the world’s richest arenas for competition between the economic and cultural spheres of India, China, the United States, and to a lesser degree, the Islamic Middle East. Claimed by no fewer than five nations on its periphery — six counting Taiwan — two of which, Vietnam and Indonesia, are rising regional powers, and one, China, which aspires to global relevance, the South China Sea is a resource rich and geographically severe choke point. Its waters are managed on two levels: nationally by claimant states, and internationally by the Association of Southeast Asian Nations (ASEAN). Though ASEAN’s grip is divided and intentionally weak, it is one of the mechanisms by which the United States seeks to prevent China from turning the entirety of the South China Sea into its territorial waters, barred to the innocent passage of American warships of the 7th US Fleet which, for the moment, is the real power that polices the region.
ASEAN and its member states all exhibit resistance potential which China attempts to exploit by isolating Vietnam and the Philippines, and weakening rival-nation control of areas adjacent to the Spratly, Paracel, and Pratas Island chains. To the extent that we can consider ASEAN a unified political entity, it is a fractured one at best. Its member states feature extreme cultural differences and long histories of conflict with one another. There are numerous examples of ongoing territorial disputes between them, many of which affect the waters of the South China Sea itself. In this way, each claimant state resembles an identifiable minority group with a geographic concentration and grievances against its neighbors if not against its capital in Jakarta. ASEAN’s governance is weak. Its decision-making processes are not rule based and are subject to the corruption of horse-trading. It has no police, no intelligence service, no Army or Navy. Its raison d’être is in keeping its members from interfering in each other’s internal politics and thus it is vulnerable to having parts of its territory carved away by active measures.
The situation is far less certain at the national level. Resistance potential within Southeast Asian nations resides largely in a very visible Chinese minority –- the Straits Chinese -– that has throughout history been the target of violent mass grievance inflamed for cynical domestic political reasons. China largely ignored the plight of the Straits Chinese for centuries except for a historically brief period between 1949 and 1972 when Beijing supported Communist movements throughout Southeast Asia.
Despite its historical ambivalence, China’s claim to the South China Sea is based in part on the exploratory voyages that brought the Straits Chinese to Southeast Asia to begin with. It is not a stretch therefore, to imagine that the Straits Chinese may represent a conduit for Hybrid Warfare. To be certain, Vietnam, Malaysia, Indonesia, and the Philippines all harbor this concern about their Chinese minorities though there is no evidence China is even considering agitating the Straits Chinese for political purposes.
Beijing is cautious for good reason. Resistance potential of the Straits Chinese is not as high as it may seem. The peninsular and archipelagic states of Southeast Asia do not provide useful areas of sanctuary where insurgents can thrive. Thailand, Indonesia, and Malaysia all successfully defeated ethnic Chinese-led insurgencies since the Second World War and if anything, the potential for resistance has decreased since then. Ethnic Chinese citizens of Southeast Asian nations (other than Singapore) do not dominate any geographic regions nor do they control any of the institutions of state. Perhaps surprisingly, their cultural connection to China is not to Beijing, but to Fujian and Guangdong provinces, from which their ancestors fled privation or persecution, in some cases at the hands of the government in Beijing. Furthermore, the Straits Chinese have enjoyed a relatively high standard of living when compared with their fellow countrymen from majority groups.
Though Southeast Asia is home to a number of other disaffected, even insurgent groups, these are all ideologically or culturally opaque for Chinese Hybrid Warfare actors. None of these groups reside in the uninhabited seascape under contention. Unlike in Crimea where Russia was able to weaken and replace Ukrainian governance with ethnic Russians as a prelude to a political maneuver, Chinese Hybrid Warfare can at best weaken rival-nation control over the South China Sea. The situation simply lacks the finality offered by a follow-on political ploy.
Though the situation in the South China Sea differs from that in Crimea primarily because the area under contention is an uninhabited seascape, there is no doubt China uses Hybrid Warfare to enable its increasing control. Whether these techniques and the motivation to use them are inspired by the Crimean case is a much harder question to answer. Indeed the 2014 drama between China and Vietnam over a drilling rig played itself out at a grassroots level with fishermen deployed from both sides to either harass or defend the rig. To what extent this can be considered government-sponsored Hybrid Warfare is debatable but it gives an indication that disputes in the area will be fought by actors of ambiguous legal status and authority. As in Crimea, where Hybrid War is used to advance Russian territorial ambitions without sparking a response by NATO, China calibrates it use of similar tactics to ensure its adversaries in the region do not draw the United States too actively into the contest.
Again, use of Hybrid Warfare tactics in the South China Sea does not prove a connection to events in Crimea. Indeed, publication of “Unrestricted Warfare” by the Chinese War College demonstrated a willingness to use Hybrid Warfare techniques as far back as 1999. However, the substantive difference with today’s efforts is that while Unrestricted Warfare was aimed at countering another state, today’s efforts in the South China Sea have sub-state territorial goals. If there is an observable connection between Russia’s success and China’s efforts, it is only in the mindset required to apply active measures for limited territorial gains. Though reassuring in the sense that Hybrid Warfare minimizes violence, herein lies the real danger to international security; that use of the techniques may proliferate to other states with similar territorial ambitions, exacerbating existing tensions or turning competition into conflict.
Lino Miani is a retired US Army Special Forces officer, author of The Sulu Arms Market, and CEO of Navisio Global LLC
Taking a page from the Pentagon’s playbook, China last month publicly revealed a new military strategy; a first ever move that advertises how Beijing intends to implement its growing foreign policy in the coming years. Released on May 26th just days ahead of the 2015 Shangri-La Dialogues, the strategy supports China’s three national priorities (safeguarding national unification, maintaining territorial integrity, and developing its economy), and describes a shift away from land power in favor of the air and maritime domains. But the new strategy is about much more than a simple change in emphasis, it embraces joint operations and offensive warfare, particularly in the maritime domain, and introduces security cooperation as a key element of national policy. These are sophisticated concepts associated with power projection and though this may cause concern in some western military circles, they are a recognition of a strategic reality that has been evident for some time already: specifically that China simply must project power if it wants to sustain its increasing importance in the global economy.
The emergence of the air and maritime domains (and by extension the space domain) in Chinese strategic thinking is a natural outgrowth of the country’s new economy. In the 1950s when China set the foundations on its previous strategic concept, the country was an inward-facing rural agrarian society that largely provided all the resource needs of its own economy. Territorial integrity and population resource control within mainland China were the overarching preoccupations of Beijing. An independent, centralized economy and a closed society were basic tools to maintain this control and support the limited foreign policy of the Chinese Communist Party.
The Chinese Dream
Needless to say, that has been changing at an ever-quickening pace since Deng Xiaoping suggested that to be rich is glorious. Since then, China has become an integral player in the modern globalized economy. It joined the World Trade Organization in 2001 and now provides labor and infrastructure for an enormous percentage of the world’s simple manufacturing; in effect, China has subordinated its foreign policy to its economy much as western nations have been doing for hundreds of years. In this regard, the new Chinese strategy is a sensible adjustment to globalization.
Thus, power projection has become the unifying principle of Chinese military development affecting all branches of its armed forces. The People’s Liberation Army (PLA), traditionally a defensive force, is transitioning “from theater defense to trans-theater mobility”. It is adapting itself to tasks in different regions of the world and for different purposes. The PLA Air Force (PLAAF) will take on offensive missions including air strike, airborne operations, and strategic projection. This last bit was clearly on the minds of generals and politicians in Beijing during the search for Malaysia Airlines flight 370 which featured PLAAF air and logistical units operating deep in the Indian Ocean from forward bases for extended periods. Though the operation revealed weaknesses in air-sea integration, intelligence fusion, and planning, it was a necessary first step and undoubtedly provided many important lessons. The PLA Navy (PLAN), which in the past more closely resembled a coast guard than a true navy, is making the most visible transition, developing carrier aviation, ballistic missile submarines, and possibly even anti-ship ballistic missiles. Like the PLA Air Force, the PLAN is already experimenting with power projection, operating a national counter-piracy operation in the Arabian Sea and Gulf of Aden since 2008 and influencing construction of dual-use port facilities in the Maldives, Pakistan, and elsewhere. Notably, PLAN also pioneered integration with Chinese paramilitary units of the Coast Guard and Fisheries Service that are on the forefront of defending territorial claims in the East and South China Seas.
While China’s military evolution is observable and measurable, other aspects of its drive to project power are less so. Chinese cyber units have been attacking American military and commercial activities for years with the latest incident, according to two US Senators, taking place last week when hackers stole security background information of up to 4 million US Government officials. In the realm of security cooperation, Chinese Special Operations Forces (SOF) are also becoming more active and more aggressive. There were credible reports in June 2014 that Chinese SOF helped evacuate their nationals from Iraq as that country came under threat from the Islamic State of Iraq and the Levant (ISIL). Similar operations took place more recently in Yemen. Chinese naval commandos are known to operate with PLAN task groups in the Gulf of Aden, and other Chinese SOF are busy engaging counterparts around the world. By early 2012, this activity had accelerated so much that US Intelligence grew concerned this was a systematic attempt to directly counter American influence in Southeast Asia. They had determined that Chinese SOF were engaging Southeast Asian units hot on the heels of similar visits by US SOF teams. While the timing and the targets of these exchanges is impossible to dispute, these patterns probably had more to do with host nation priorities for which units would benefit from the training. Whatever the real motivation, the point is that Chinese SOF are engaging regional neighbors in the exact same manner as US SOF and reportedly with much more flexible rules for investing in their hosts. And while SOF is the most versatile and reliable of China’s tools for security cooperation, it is hardly the biggest or most important. China maintains robust relations through training exchanges in Africa and Latin America and routinely conducts combined exercises with Russia under the auspices of the Shanghai Cooperation Organization (SCO). The new strategy reinforces these interactions but also specifically recommends increasing military ties with Europe in unspecified ways.
For observers and practitioners familiar with the strategic culture of China in the last ten years, there is a noticeable if hesitant emergence of the Chinese military from the shadows of secrecy and a defensive mindset. While western nations may be very happy to accept China into the global economy, they are less comfortable with the corresponding increase in Chinese military engagement. Western discussions on the management of China’s rise are overwhelmingly presented in economic terms, leaving us to ponder whether the purpose of the newly released strategy is to remind us that we must also consider the rise of China’s military if we hope to keep peace in Asia.
Lino Miani is a retired US Army Special Forces officer, author of The Sulu Arms Market, and CEO of Navisio Global LLC.