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141. Global Swing States and the New Great Power Competition

Author:
Richard Fontaine and Gibbs McKinley
Publication Date:
06-2025
Content Type:
Special Report
Institution:
Center for a New American Security (CNAS)
Abstract:
International politics is undergoing a period of rapid, significant change. China and Russia are working together more closely and alongside Iran and North Korea in opposition to what they view as a U.S.-dominated international order.1 The current U.S. administration has in its early days pursued a form of upheaval, altering key policies, relationships, and arrangements. Policymakers in Washington represent a mix: Some see the rules-based international order as key to U.S. security, prosperity, and liberty, while others argue that any such order exists only to enrich other countries at America’s expense. In contrast to broad, vague notions of what constitutes international order, five concrete pillars have benefited the United States over recent decades. The territorial order aims to protect national sovereignty and discourage wars of conquest; the global trade order aims to regularize an open international trading system in which prosperity can increase; the financial order aims to facilitate international trade and investment, promote monetary stability, and avoid crises; the nonproliferation order attempts to limit the spread of nuclear weapons; and the human rights order seeks to preserve the basic rights and liberties of individuals everywhere. Despite the many doubts about them, these core pillars of the international order enhance the security, prosperity, and freedom of Americans. As a result, the overarching goal of U.S. policy should be to preserve them, even as specific rules and institutions change and adapt. Policymakers should work with allies and against adversaries in this attempt, focusing on six “global swing states”—Brazil, India, Indonesia, Saudi Arabia, South Africa, and Türkiye—that together will exert disproportionate influence over the future of international order. Each of these countries is multi-aligned and determined to maintain ties with the United States, Russia, and China. They all seek to reform existing rules and institutions. Together, they possess the geopolitical weight to sway the future of global order. This report offers a multifaceted path for engaging with global swing states, aiming U.S. policy at a vision of world order favorable to American interests and values. Informed by more than a year of research and consultations, it offers a set of cross-cutting and country-specific policy recommendations.
Topic:
Geopolitics, Strategic Competition, International Order, and Great Powers
Political Geography:
China, Iran, North Korea, and United States of America

142. The Axis of Upheaval: Gauging the Growing Military Cooperation Among Russia, China, Iran, and North Korea

Author:
Andrea Kendall-Taylor and Nicholas Lokker
Publication Date:
07-2025
Content Type:
Special Report
Institution:
Center for a New American Security (CNAS)
Abstract:
Russia’s full-scale invasion of Ukraine in 2022 was a critical catalyst for cooperation among Russia, China, Iran, and North Korea—what the authors call the “axis of upheaval.” Already, defense cooperation between these countries has enabled Russian aggression against Ukraine, increased their military capabilities in ways that make each country a more formidable threat, emboldened their more brazen and destabilizing actions, and magnified gray zone actions against the United States and its allies. Although much of this cooperation occurs bilaterally among specific dyads of the axis, that cooperation is increasingly beneficial to the overall group. Russian advancements on the battlefield in Ukraine and experience in modern warfare, for example, are diffusing to each axis country. Iranian drone technology now flows through Russia to North Korea and China, and Russian defense officials frequently travel from one axis capital to the next, creating connectivity among multiple members of the axis that would not otherwise exist. The cooperation among the axis of upheaval will persist, despite some claims that Russia’s and China’s limited support for Iran amid Israeli and U.S. strikes spell the end of their ties. China, Iran, and North Korea deliberated for months on the sidelines of Russia’s war before moving to more fully support Moscow after its full-scale invasion of Ukraine. China gave little more than its diplomatic support to the Kremlin in the first months after Russia’s invasion, and it was nearly six months until public reports documented the arrival of Iran’s drones in Russia. While these countries are reticent to incur unnecessary costs on behalf of their partners, they will seek out opportunities to support one another, especially in ways that help them withstand Western pressure. The incentives fueling their cooperation have not changed since Israel’s actions against Iran, and, if anything, Russia, China, and North Korea are likely to see value in helping Tehran reconstitute its capacity to antagonize the United States and create policy dilemmas for Washington.
Topic:
Security, Military Affairs, Cooperation, and Russia-Ukraine War
Political Geography:
Russia, China, Iran, and North Korea

143. Countering the Digital Silk Road: Kenya

Author:
Vivek Chilukuri and Ruby Scanlon
Publication Date:
07-2025
Content Type:
Special Report
Institution:
Center for a New American Security (CNAS)
Abstract:
This year marks the 10th anniversary of the Digital Silk Road (DSR), China’s ambitious initiative to shape critical digital infrastructure around the world to advance its geopolitical interests and technology leadership. A decade after its launch, digital infrastructure and emerging technologies have only grown more vital and contested as demand for connectivity, digital services, and emerging technologies like artificial intelligence (AI) expand. Against this backdrop, the DSR has become increasingly central to China’s broader strategy to challenge and ultimately supplant the U.S.-led digital order, and in doing so, reap potentially vast security, economic, and intelligence advantages. To assess the DSR’s impact 10 years after its inception—and explore how the United States and its allies can offer a more compelling and coherent alternative—the Center for a New American Security (CNAS) Technology and National Security team has undertaken a major research project that produces in-depth case studies of four diverse and geostrategically critical nations—Indonesia, Brazil, Kenya, and Saudi Arabia—and culminates in a full-length report. The third case study focuses on Kenya. For the study, researchers from the CNAS Technology and National Security team spent a week in the country interviewing U.S. and Kenyan policymakers, journalists, technology firms, civil society, and academics. Drawing on these interviews and desk research, this case study seeks to shed light on the current dynamics and stakes of the U.S.-China competition to shape Kenya’s digital ecosystem. It assesses the effectiveness of China’s DSR campaign vis-à-vis U.S. and allied efforts to align Kenya’s digital ecosystem with theirs in a way that advances U.S. security, economic interests, and values.
Topic:
Foreign Policy, Geopolitics, Digital Silk Road (DSR), and Digital Infrastructure
Political Geography:
Kenya, Africa, and China

144. Quad: The Next Phase

Author:
Lisa Curtis, Kareen Hart, Ryan Claffey, Keerthi Martyn, and Thomas Corel
Publication Date:
06-2025
Content Type:
Special Report
Institution:
Center for a New American Security (CNAS)
Abstract:
T The Quadrilateral Security Dialogue (Quad) among the United States, Australia, India, and Japan is becoming the focal point for economic and technological cooperation in the Indo-Pacific as the competition between the United States and China intensifies and regional power dynamics continue to evolve. The Quad nations share democratic values and seek to advance an affirmative vision for the region that promotes an inclusive regional architecture and offers options for regional partners, which are charting their economic and security futures in the face of growing great power competition. The second Trump administration is signaling its commitment to deepening Quad cooperation to counter China’s efforts to dominate the region and to ensure other countries in the region remain prosperous, peaceful, and free from coercion. However, the administration also has indicated that it wants to streamline the work of the Quad and whittle down its dozens of different working groups to focus on a handful of priorities. With the need to deliver tangible results, the administration is interested in maintaining fewer—yet more active—working groups that produce substantial outputs.1 While the Quad has made notable progress since it was revived nearly eight years ago, there is opportunity to expand and deepen its work to fulfill its promise of promoting a free, open, peaceful, and prosperous Indo-Pacific. To
Topic:
Security, International Cooperation, Economy, Strategic Competition, and Quad Alliance
Political Geography:
Japan, China, India, Australia, United States of America, and Indo-Pacific

145. China in Iraq

Author:
Ingrid D'Hooghe, Vera Kranenburg, and Erwin van Veen
Publication Date:
01-2025
Content Type:
Policy Brief
Institution:
Clingendael Netherlands Institute of International Relations
Abstract:
China’s main objective in Iraq is to ensure a reliable supply of oil that diversifies Beijing’s imports without making it dependent on Baghdad. China has a large economic footprint in Iraq, moderately strong diplomatic ties and is marginally relevant from a security perspective. Specifically, 50-67% of Iraq’s oil production comes from fields where Chinese companies are involved as investors, producers or in field servicing roles. Iraq’s political elites welcome Chinese engagement as its foreign policy is less intrusive and more respectful than the United States, its presence creates alternatives and its economic deals are profitable on Iraqi terms.
Topic:
Foreign Policy, Diplomacy, Economics, Oil, Bilateral Relations, and Imports
Political Geography:
China, Iraq, Middle East, and Asia

146. The First 90 Days of Trump 2.0

Author:
Rachel Tausenfreund, Thomas Kleine-Brockhoff, Claudia Schmucker, Aylin Matlé, and Stefan Meister
Publication Date:
04-2025
Content Type:
Special Report
Institution:
German Council on Foreign Relations (DGAP)
Abstract:
This report examines the first 90 days of the Trump 2.0 administration and offers strategic recommendations for the new German government and its partners in Europe and beyond. DGAP experts analyze the administration’s priorities and methods across key policy areas and explore how best to respond. The opening chapter outlines the ideological foundations of Trump’s new coalition and their foreign policy implications, concluding with key insights and policy takeaways.
Topic:
Security, Foreign Policy, NATO, Climate Change, Migration, Science and Technology, Trade, Donald Trump, and Russia-Ukraine War
Political Geography:
Russia, China, Europe, Ukraine, Germany, and United States of America

147. Net-Zero and Nonproliferation: Assessing Nuclear Power and Its Alternatives

Author:
Henry D. Sokolski
Publication Date:
01-2024
Content Type:
Book
Institution:
Nonproliferation Policy Education Center
Abstract:
Six years ago, NPEC ran a mock execution of a law Congress passed in 1978 but that the Executive refused to implement —Title V of the Nuclear Nonproliferation Act of 1978. Title V called on the State and Energy Departments to conduct country-specific analyses of how developing states might best meet their energy needs without nuclear power. It also called for the creation of an energy Peace Corps and an assessment of what our government was spending on energy development aid-related projects. When NPEC started its efforts, the staff on the Senate Foreign Relations Committee asked to see what NPEC produced to use it to pressure the Executive finally to implement the law. NPEC commissioned a number of studies on how Iran, Saudi Arabia, China, and Taiwan might best meet their energy requirements without nuclear power. The center also contracted studies on the history and intent of Title V and on what government programs were already in play that aligned with Title V‘s stated objectives. As soon as NPEC’s project was completed, the Senate Foreign Relations Committee staff prepared a letter to Secretary of State Hillary Clinton asking the Secretary finally to implement Title V and file the reports required by law. Then, something unexpected occurred. The committee’s legal counsel discovered that the Secretary was under no obligation to comply: Congress had eliminated Title V’s reporting requirements along with several hundred other Congressionally mandated reports back in 1995. Flummoxed, I quietly set the book manuscript aside. Why, then, release it today? Because it is again timely. In October, the Biden Administration announced it is still considering extending civilian nuclear cooperation with Riyadh that would allow the Kingdom to enrich uranium — a process that can bring states within weeks of acquiring the bomb. Administration officials no longer question if Saudi Arabia really needs nuclear energy to meet its energy requirements. Shouldn’t they? Meanwhile, Taiwan’s presidential election this coming Saturday will, among other things, decide if Taiwan will build more nuclear reactors or not. Again, is new nuclear Taiwan’s best energy bet? As for China, the Pentagon has become increasingly concerned that the two “peaceful” fast breeder reactors and plutonium reprocessing plants Beijing is building will be used to make hundreds of bombs worth of weapons plutonium. One of the two fast breeder reactors is already operating. The question these dangerous nuclear activities raise is just how necessary they are to meet China’s energy requirements. Then, there’s Iran, which is intent on building reactors of Iranian design. It plans on expanding its nuclear power program from roughly one gigawatt electrical capacity to 11. Given Iran’s renewables potential and oil and gas reserves, how much sense does this make? Finally, in its efforts to achieve net zero, the Biden Administration has joined 20 other nations in pledging to triple global nuclear generation by 2050. Again, how practical is this? This volume’s aim is to help provide answers. Of course, in light of how long our government has ignored Title V, demanding it be implemented now would be odd. Creating a clean energy Peace Corps, comparing the costs of different types of energy, and trying to determine what investments would reduce emissions quickest and cheapest, however, all should be discussed. It’s my hope that the release of Net-Zero and Nonproliferation: Assessing Nuclear Power and Its Alternatives today might prompt such discussion.
Topic:
International Cooperation, Nuclear Power, Nonproliferation, Legislation, Energy, and Net Zero
Political Geography:
China, Iran, Middle East, Taiwan, Asia, Saudi Arabia, North America, and United States of America

148. German Ports and China: How to Reconcile Openness, Resilience and Security?

Author:
Marie Krpata
Publication Date:
04-2024
Content Type:
Case Study
Institution:
Institut français des relations internationales (IFRI)
Abstract:
Germany is dependent on its ports for the smooth running of its open economic model and has benefited from globalization in recent decades when the internationalization of its value chains strengthened its competitiveness. Yet, with today’s hardening geopolitics, the vulnerabilities of Europe’s leading economic power are becoming apparent. Germany’s ports are an indispensable interface between its production base and its export markets, as well as for its sources of supply. Crucial to its competitiveness, Germany’s ports are becoming increasingly indispensable for energy supplies given the country’s decoupling from Russian hydrocarbons, and they are essential for the deployment of military equipment to Europe’s eastern flank. This is why particular vigilance is required in ports such as Hamburg, where the Chinese shipping company COSCO has acquired a stake in the company operating the Tollerort terminal. This transaction would scarcely have worried anyone in the past. But now it is the subject of bitter discussions, with the Zeitenwende (“change of era”) announced by Olaf Scholz in reaction to Russia’s war of aggression against Ukraine. Increased caution seemed to gain a foothold in order not to repeat past mistakes –until the German Chancellor decided in favor of the acquisition. Given closer ties between China and Russia, China’s assertive stance on the international stage, and increased pressure on Germany from its American ally to clarify its position with regard to its main trading partner, Germany is seeing its room for maneuver shrink. Today, we need a more European approach that goes beyond short-term, profit-driven concerns. But to achieve this, we need to put in place a range of resources to be deployed in a resolutely cooperative approach.
Topic:
Security, International Trade and Finance, Sports, Trade, Industry, and Resilience
Political Geography:
China, Europe, Asia, and Germany

149. Xi Jinping’s Visit to France: Stumbling Blocks Pile Up on the Path of Bilateral Cooperation

Author:
Marc Julienne
Publication Date:
05-2024
Content Type:
Working Paper
Institution:
Institut français des relations internationales (IFRI)
Abstract:
On May 6 and 7, Chinese President Xi Jinping will pay a state visit to France, his first to Europe since 2019 and the Covid-19 pandemic. Emmanuel Macron and Xi Jinping will celebrate Franco-Chinese friendship and the sixtieth anniversary of the establishment of diplomatic relations between their two countries. It comes at a time when the bilateral relationship is officially perceived as positive on both sides, especially after the French President’s visit to China in April 2023. However, beneath the diplomatic varnish, obstacles are piling up, and the space for cooperation between the two countries is receding. Of the four major areas of cooperation on the visit’s agenda – Ukraine, economic relations, human and cultural exchanges, and global challenges – the first three are already facing significant limitations. Beyond the strictly bilateral relationship, the two heads of state have radically different visions of and for Europe. Finally, there is a number of issues that remain absent from the discussions, which are not likely to ease tensions: the Taiwan Strait, nuclear arms control and Chinese interference in Europe. They will need to be addressed sooner or later.
Topic:
Foreign Policy, Diplomacy, Bilateral Relations, Emmanuel Macron, and Xi Jinping
Political Geography:
China, Europe, Asia, and France

150. Power and Financial Interdependence

Author:
Brad Setser
Publication Date:
05-2024
Content Type:
Working Paper
Institution:
Institut français des relations internationales (IFRI)
Abstract:
The link between financial self-reliance and geopolitical power has long been debated. The unbalanced Sino-American trade relationship has created asymmetric financial ties which generate potential sources of leverage for both parties and will not quickly disappear. Absent a clarifying major crisis, it will be difficult to definitively determine which party has greater leverage. Many in the United States (US) are concerned about indebtedness to its primary strategic rival, and the risks posed by a sudden Chinese withdrawal from US financial markets. US policymakers actively sought to encourage China’s top leadership not to withdraw financing from the market for US Agency securities in the run-up to the global financial crisis. Yet China also sees risks in this unbalanced financial relationship. Chinese policymakers have expressed concern about the domestic political consequences of losses on either their Treasury or Agency holdings and actively have sought to diversify China’s reserves – including by substituting the risk of lending to developing economies for the visibility associated with large holdings of Treasuries in US custodians. China increasingly worries that its dollar holdings and the dollar’s global role increase its vulnerability to potential financial sanctions. Both parties thus worry about the possibility that financial interdependence can be weaponized yet find it hard to extricate themselves from the inevitability of financial interdependence absent a clean break from an entrenched pattern of trade imbalances.
Topic:
International Trade and Finance, Bilateral Relations, Finance, and Interdependence
Political Geography:
China, Asia, North America, and United States of America