Center for Strategic and International Studies (CSIS)

Report Part Title: The 2019 Defense White Paper

Report Title: China and the U.S.:
Report Subtitle: Cooperation, Competition and/or Conflict An Experimental Assessment
Report Author(s): Anthony H. Cordesman, Arleigh A. Burke and Max Molot
Center for Strategic and International Studies (CSIS) (2019)

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The 2019 Defense White Paper

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 China’s 2019 Defense White Paper
China’s 2019 defense white paper — China’s National Defense in the New Era — was issued on July 22nd in both Chinese and English. Unlike
China’s previous defense white papers — the most recent of which came out in 2015 and was often blandly reassuring to the point of being
vacuous — the 2019 White Paper picks up the gauntlet that the U.S. threw down in its 2017 National Security Strategy and 2018 National
Defense Strategy. Both of these documents effectively made China the key objective in strengthening U.S. military forces and single it out as
America’s primary strategic competitor.
While the China’s National Defense in the New Era does make broad claims that China’ s strategy is entirely peaceful, many other portions of
the paper show that it is clearly a response to the shift in U.S. strategy from a focus on counterterrorism and extremism to one competition
and possible conflict with China and Russia. The 2019 White Paper flags the fact that America and China are now competing superpowers,
and that China’s growing military forces are developing to the point where they will be able to challenge the United States. More than that,
the following sections of this report show that many aspects of detailed contents of the White Paper are a direct response to the official U.S.
reports on Chinese Military Power issued by the Office of the Secretary of Defense and by the Defense Intelligence Agency.
The new Chinese White Paper touches on every key point in the 2019 versions of these two U.S. reports, and portrays the Chinese actions
they describe as threats as just and peaceful. It summarizes the overall character of United States defense efforts by declaring that,
International strategic competition is on the rise. The US has adjusted its national security and defense strategies, and adopted unilateral policies. It has
provoked and intensified competition among major countries, significantly increased its defense expenditure, pushed for additional capacity in nuclear, outer
space, cyber and missile defense, and undermined global strategic stability. NATO has continued its enlargement, stepped up military deployment in Central and
Eastern Europe, and conducted frequent military exercises.

It describes China as trying to bring Asia together in peaceful cooperation through organization like the Shanghai Cooperation Council, the
China-ASEAN Defense Ministers’ Informal Meeting, and the ASEAN Defense Ministers’ Meeting Plus (ADMM-Plus). In contrast, the Chinese
White Paper states that,
the region has become a focus of major country competition, bringing uncertainties to regional security. The US is strengthening its Asia-Pacific military alliances
and reinforcing military deployment and intervention, adding complexity to regional security. The deployment of the Terminal High Altitude Area Defense
(THAAD) system in the Republic of Korea (ROK) by the US has severely undermined the regional strategic balance and the strategic security interests of regional
countries.

It describes Taiwan, Tibetan, and Turkistan separatists as China’s main threats, the dangers of disputes over territory, and again highlights the
U.S. by noting that, “Countries from outside the region conduct frequent close-in reconnaissance on China by air and sea, and illegally enter
China’s territorial waters and the waters and airspace near China’s islands and reefs, undermining China’s national security.”

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Source: Quotes are excerpted from China’s National Defense in a New Era, July 2019,
http://www.xinhuanet.com/english/download/whitepaperonnationaldefenseinnewera.doc
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The Chinese White Paper also describes the modernization and expansion of Chinese military forces as being almost totally defensive:
“China’s military security is confronted by risks from technology surprise and growing technological generation gap. Greater efforts have to
be invested in military modernization to meet national security demands. The PLA still lags far behind the world’s leading militaries.” It also
declares that,
Though a country may become strong, bellicosity will lead to its ruin. The Chinese nation has always loved peace. Since the beginning of modern times, the
Chinese people have suffered from aggressions and wars, and have learned the value of peace and the pressing need for development. Therefore, China will
never inflict such sufferings on any other country. Since its founding 70 years ago, the People’s Republic of China (PRC) has never started any war or conflict.
Since the introduction of reform and opening-up, China has been committed to promoting world peace, and has voluntarily downsized the PLA by over 4 million
troops. China has grown from a poor and weak country to be the world’s second largest economy neither by receiving handouts from others nor by engaging in
military expansion or colonial plunder. Instead, it has developed through its people’s hard work and its efforts to maintain peace. China has made every effort to
create favorable conditions for its development through maintaining world peace, and has equally endeavored to promote world peace through its own
development. China sincerely hopes that all countries will choose the path of peaceful development and jointly prevent conflicts and wars.

The White Paper portrays the U.S. as the power that is making sweeping increase in military spending and is the more aggressive power. It
totally ignores the comparative rises in actual U.S. and Chinese military expenditures, and the fact that the fact that China only reports a
limited part of its true military expenditures. It instead claims that the U.S. is spending 2.7 times more of its economy (3.5% of GDP vs. 1.3%
for China) on military forces, and nearly twice the percentage of its total government expenditures (9.8% vs. 5.3%).
At the same time, the defense White Paper goes on to address virtually every major aspect of Chinese military activity and development as
peaceful. For example, it deals with the South China Sea issue by stating that,
China’s armed forces defend important waters, islands and reefs in the East China Sea, the South China Sea and the Yellow Sea, acquire full situation awareness
of adjacent waters, conduct joint rights protection and law enforcement operations, properly handle maritime and air situations, and resolutely respond to
security threats, infringements and provocations on the sea. Since 2012, China’s armed forces have deployed vessels on over 4,600 maritime security patrols
and 72,000 rights protection and law enforcement operations, and safeguarded maritime peace, stability and order…China’s armed forces conduct air defense,
reconnaissance and early warning, monitor China’s territorial air and peripheral air space, carry out alert patrols and combat takeoff, and effectively respond to
emergencies and threats to maintain order and security in the air…Aiming at safeguarding national unity, China’s armed forces strengthen military preparedness
with emphasis on the sea. By sailing ships and flying aircraft around Taiwan, the armed forces send a stern warning to the “Taiwan independence” separatist
forces.
Yet, it is also important to note that in some ways, the Chinese White Paper is more moderate in its treatment of the U.S. than the U.S.
strategy papers issue in 2017 and 2018 were in discussing military developments in China,
China actively and properly handles its military relationship with the US in accordance with the principles of non-conflict, non-confrontation, mutual respect and
win-win cooperation. It strives to make the military-to-military relationship a stabilizer for the relations between the two countries and hence contribute to the
China-US relationship based on coordination, cooperation and stability. In 2014, China’s Ministry of National Defense (MND) and the US Department of Defense
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 signed the Memorandum of Understanding on Notification of Major Military Activities and Confidence-Building Measures Mechanism and the Memorandum of
Understanding Regarding the Rules of Behavior for Safety of Air and Maritime Encounters. In 2015, the two countries agreed on the annexes on the military
crisis notification mechanism and the rules of behavior for safety in air-to-air encounters. In 2017, the two countries established a diplomatic and security
dialogue and joint staff dialogue mechanism with a view to actively strengthening strategic communication and managing risks and differences. The two
militaries carry out institutionalized exchanges between the defense authorities, armies, navies and air forces, as well as practical cooperation in HADR, counter-
piracy, and exchanges between academic institutions. China resolutely opposes the wrong practices and provocative activities of the US side regarding arms
sales to Taiwan, sanctions on the CMC Equipment Development Department and its leadership, illegal entry into China’s territorial waters and maritime and air
spaces near relevant islands and reefs, and wide-range and frequent close-in reconnaissance. However, in China-US relations, the military-to-military
relationship remains the generally stable one.
One does not have to read between the lines of the White Paper to see that China’s National Defense in a New Era does identify China as a
major strategic competitor to the United States. The text is very careful, however, to limit the level of this competition, and its wording
makes it clear that China understands the risks involved. While no major policy document issued by any country has ever been able to fully
separate rhetoric from reality, the Chinese White Paper does spend the last five pages of its text describing Chinese efforts to improve
regional cooperation, and some are clearly real. The White Paper does not even hint at the level of ideological competition that drove the
Cold War between the Soviet Union and the West. And, as important as many security issues are between the U.S. and China, no issue other
than Taiwan is discussed in ways that approach the point of being so critical in terms of Chinese strategic interests that it indicates a
willingness to escalate to any form of serious conflict.
Seen from this perspective, the Chinese White Paper — like the two recent U.S. national strategy documents cited at the start of this
commentary – is a clear warning of growing strategic rivalry between an existing and emerging super power that already is stronger than
Russia in virtually every respect other than its number of nuclear weapons. It is a warning that will shape the future of both the China and
the U.S. for decades to come.
The White Paper is not, however, an indication that some mix of U.S. and Chinese cooperation and competition has to evolve into major
conflict. As such, the U.S. should respond by strengthening its level of deterrence and its strategic partnerships in Asia, but it should also find
every possible opportunity for cooperation with China and to limit the military and civil competition between the two countries to peaceful
forms where the end result can benefit both powers to at least some extent. If nothing else, China’s National Defense in a New Era is a clear
warning that a failure to do so will increase the level of risk to both powers indefinitely into to the future.

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 China’s National Defense in the New Era, 2019 White Paper on Strategy - I
The socialist system of China, the strategic decision to follow the path of peaceful development, the independent foreign policy of peace, and
the best of cultural traditions – considering peace and harmony as fundamentals – determine that China will pursue a national defense policy
that is defensive in nature.
Resolutely Safeguarding China’s Sovereignty, Security and Development Interests
This is the fundamental goal of China’s national defense in the new era.
China’s national defense aims:
• to deter and resist aggression;
• to safeguard national political security, the people’s security and social stability;
• to oppose and contain “Taiwan independence”;
• to crack down on proponents of separatist movements such as “Tibet independence” and the creation of “East Turkistan”;
• to safeguard national sovereignty, unity, territorial integrity and security;
• to safeguard China’s maritime rights and interests;
• to safeguard China’s security interests in outer space, electromagnetic space and cyberspace;
• to safeguard China’s overseas interests; and
• to support the sustainable development of the country.
China resolutely safeguards its national sovereignty and territorial integrity. The South China Sea islands and Diaoyu Islands are inalienable
parts of the Chinese territory. China exercises its national sovereignty to build infrastructure and deploy necessary defensive capabilities on
the islands and reefs in the South China Sea, and to conduct patrols in the waters of Diaoyu Islands in the East China Sea. China is committed
to resolving related disputes through negotiations with those states directly involved on the basis of respecting historical facts and
international law. China continues to work with regional countries to jointly maintain peace and stability. It firmly upholds freedom of
navigation and overflight by all countries in accordance with international law and safeguards the security of sea lines of communication
(SLOCs).
To solve the Taiwan question and achieve complete reunification of the country is in the fundamental interests of the Chinese nation and
essential to realizing national rejuvenation. China adheres to the principles of “peaceful reunification”, and “one country, two systems”,
. Source: China’s National Defense in a New Era, July 2019, http://www.xinhuanet.com/english/download/whitepaperonnationaldefenseinnewera.doc 29

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 China’s National Defense in the New Era, 2019 White Paper on Strategy - II
promotes peaceful development of cross-Strait relations, and advances peaceful reunification of the country. Meanwhile, China resolutely
opposes any attempts or actions to split the country and any foreign interference to this end. China must be and will be reunited. China has the
firm resolve and the ability to safeguard national sovereignty and territorial integrity, and will never allow the secession of any part of its
territory by anyone, any organization or any political party by any means at any time. We make no promise to renounce the use of force, and
reserve the option of taking all necessary measures. This is by no means targeted at our compatriots in Taiwan, but at the interference of
external forces and the very small number of “Taiwan independence” separatists and their activities. The PLA will resolutely defeat anyone
attempting to separate Taiwan from China and safeguard national unity at all costs.
Never Seeking Hegemony, Expansion or Spheres of Influence
This is the distinctive feature of China’s national defense in the new era…Though a country may become strong, bellicosity will lead to its ruin.
The Chinese nation has always loved peace. Since the beginning of modern times, the Chinese people have suffered from aggressions and wars,
and have learned the value of peace and the pressing need for development. Therefore, China will never inflict such sufferings on any other
country. Since its founding 70 years ago, the People’s Republic of China (PRC) has never started any war or conflict. Since the introduction of
reform and opening-up, China has been committed to promoting world peace, and has voluntarily downsized the PLA by over 4 million troops.
China has grown from a poor and weak country to be the world’s second largest economy neither by receiving handouts from others nor by
engaging in military expansion or colonial plunder. Instead, it has developed through its people’s hard work and its efforts to maintain peace.
China has made every effort to create favorable conditions for its development through maintaining world peace, and has equally endeavored to
promote world peace through its own development. China sincerely hopes that all countries will choose the path of peaceful development and
jointly prevent conflicts and wars.
China is committed to developing friendly cooperation with all countries on the basis of the Five Principles of Peaceful Coexistence. It respects
the rights of all peoples to independently choose their own development path, and stands for the settlement of international disputes through
equal dialogue, negotiation and consultation. China is opposed to interference in the internal affairs of others, abuse of the weak by the strong,
and any attempt to impose one’s will on others. China advocates partnerships rather than alliances and does not join any military bloc. It stands
against aggression and expansion, and opposes arbitrary use or threat of arms. The development of China’s national defense aims to meet its
rightful security needs and contribute to the growth of the world’s peaceful forces. History proves and will continue to prove that China will
never follow the beaten track of big powers in seeking hegemony. No matter how it might develop, China will never threaten any other country
or seek any sphere of influence.
Implementing the Military Strategic Guideline for a New Era
This is the strategic guidance for China’s national defense in the new era. The military strategic guideline for a new era adheres to the principles
of defense, self-defense and post-strike response, and adopts active defense. It keeps to the stance
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Source: China’s National Defense in a New Era, July 2019, http://www.xinhuanet.com/english/download/whitepaperonnationaldefenseinnewera.doc
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 China’s National Defense in the New Era, 2019 White Paper on Strategy - III
that “we will not attack unless we are attacked, but we will surely counterattack if attacked”, places emphasis on both containing and winning
wars, and underscores the unity of strategic defense and offense at operational and tactical levels.
Implementing the military strategic guideline for a new era, China’s armed forces strive to keep in alignment with and contribute to the general
strategies of the Communist Party of China (CPC) and the country, adopt a holistic approach to national security, strengthen the awareness of
potential dangers, crises and wars, and actively adapt to the new landscape of strategic competition, the new demands of national security, and
new developments in modern warfare, so as to effectively fulfill their tasks and missions in the new era.
To respond to the security threats facing the country, China’s armed forces take solid steps to strengthen military preparedness and
comprehensively enhance combat capabilities for the new era. Efforts have been made to build the military strategy into a balanced and stable
one for the new era, which focuses on defense and coordinates multiple domains. Based on the idea that China’s national defense is the
responsibility of all Chinese people, China’s armed forces give full play to the overall power of the people’s war by innovating in its strategies,
tactics and measures.
China is always committed to a nuclear policy of no first use of nuclear weapons at any time and under any circumstances, and not using or
threatening to use nuclear weapons against non-nuclear-weapon states or nuclear-weapon-free zones unconditionally. China advocates the
ultimate complete prohibition and thorough destruction of nuclear weapons. China does not engage in any nuclear arms race with any other
country and keeps its nuclear capabilities at the minimum level required for national security. China pursues a nuclear strategy of self-defense,
the goal of which is to maintain national strategic security by deterring other countries from using or threatening to use nuclear weapons
against China.
Continuing to Strengthen the Military in the Chinese Way
This is the path forward for China’s national defense in the new era.
Building a fortified national defense and a strong military commensurate with the country’s international standing and its security and
development interests is a strategic task for China’s socialist modernization. Drawing lessons from history, China strengthens its national defense
and military to provide security guarantee for its peaceful development.
To strengthen China’s national defense and military in the new era, it is imperative to comprehensively implement Xi Jinping’s thinking on
strengthening the military, thoroughly deliver on Xi Jinping’s thinking on military strategy, continue to enhance the political loyalty of the armed
forces, strengthen them through reform and technology, run them in accordance with the law, and focus on the capabilities to fight and win.
Efforts will be made to advance the integrated development of mechanization and informationization, speed up the development of intelligent
military, create a modernized military force structure with Chinese characteristics, improve and develop socialist military institutions with
Chinese features, and constantly enhance the capabilities to fulfill the missions and tasks in the new era.
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Source: China’s National Defense in a New Era, July 2019, http://www.xinhuanet.com/english/download/whitepaperonnationaldefenseinnewera.doc
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 China’s National Defense in the New Era, 2019 White Paper on Strategy - IV
The strategic goals for the development of China’s national defense and military in the new era are:
• to generally achieve mechanization by the year 2020 with significantly enhanced informationization and greatly improved strategic
capabilities;
• to comprehensively advance the modernization of military theory, organizational structure, military personnel, and weaponry and
equipment in step with the modernization of the country and basically complete the modernization of national defense and the military
by 2035; and
• to fully transform the people’s armed forces into world-class forces by the mid-21st century.
In the Service of Building of a Community with a Shared Future for Mankind
This is the global significance of China’s national defense in the new era.
The dream of the Chinese people is closely connected with the dreams of peoples around the world. Peace, stability and prosperity in China
present opportunities and benefits to the rest of the world. A strong military of China is a staunch force for world peace, stability and the
building of a community with a shared future for mankind.
China’s armed forces advocate common, comprehensive, cooperative and sustainable security, uphold justice while pursuing shared interests,
and actively participate in the reform of global security governance system. Efforts are made to deepen bilateral and multilateral security
cooperation, promote a coordinated, inclusive and complementary cooperation among security mechanisms, and contribute to a security
architecture featuring equality, mutual trust, fairness, justice, joint contribution and shared benefits.
Committed to the principle of win-win cooperation, China’s armed forces will fulfill their international responsibilities and obligations, and
provide more public security goods to the international community to the best of their capacity. They actively participate in the UN
peacekeeping operations (UNPKOs), vessel protection operations, and international efforts in humanitarian assistance and disaster relief
(HADR), strengthen international cooperation in arms control and non-proliferation, play a constructive role in the political settlement of
hotspot issues, jointly maintain the security of international passages, and make concerted efforts to respond to global challenges such as
terrorism, cyber security and major natural disasters, thus making a positive contribution to building a community with a shared future for
mankind.

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Source: China’s National Defense in a New Era, July 2019, http://www.xinhuanet.com/english/download/whitepaperonnationaldefenseinnewera.doc
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