who authorized preparations for war with china?

yalejournal | Abstract—The Pentagon has concluded that the time has come to prepare for war with China, and in a manner well beyond crafting the sort of contingency plans that are expected for wide a range of possible confrontations. It is a momentous conclusion that will shape the United States’ defense systems, force posture, and overall strategy for dealing with the economically and militarily resurgent China. Thus far, however, the military’s assessment of and preparations for the threat posed by China have not received the high level of review from elected civilian officials that such developments require. The start of a second Obama administration provides an opportunity for civilian authorities to live up to their obligations in this matter and to conduct a proper review of the United States’ China strategy and the military’s role in it. 

The U.S. Military /Civilian Relationships in Facing China

The United States is preparing for a war with China, a momentous decision that so far has failed to receive a thorough review from elected officials, namely the White House and Congress. This important change in the United States’ posture toward China has largely been driven by the Pentagon. There have been other occasions in which the Pentagon has framed key strategic decisions so as to elicit the preferred response from the Commander in Chief and elected representatives. A recent case in point was when the Pentagon led President Obama to order a high level surge in Afghanistan in 2009, against the advice of the Vice President and the U.S. ambassador to Afghanistan. The decision at hand stands out even more prominently because (a) the change in military posture may well lead to an arms race with China, which could culminate in a nuclear war; and (b) the economic condition of the United States requires a reduction in military spending, not a new arms race. The start of a new term, and with it the appointment of new secretaries of State and Defense, provide an opportunity to review the United States’ China strategy and the military’s role in it. This review is particularly important before the new preparations for war move from an operational concept to a militarization program that includes ordering high-cost weapons systems and forced restructuring. History shows that once these thresholds are crossed, it is exceedingly difficult to change course.

In the following pages I first outline recent developments in the Pentagon’s approach to dealing with the rise of China; I then focus on the deliberations of the highest civilian authorities. These two sides seemed to operate in parallel universes, at least until November 2011 when the pivot to Asia was announced by the White House—though we shall see their paths hardly converged even after that date. I conclude with an outline of what the much-needed civilian review ought to cover.

I write about the “Pentagon” and the “highest civilian authori­ties” (or our political representatives) rather than contrast the view of the military and that of the civilian authorities, because the Pentagon includes civilians, who actively partici­pated in developing the plans under discussion. It is of course fully legitimate for the Pentagon to identify and prepare for new threats. The question that this article raises is whether the next level of government, which reviews such threats while taking into account the input of the intelligence com­munity and other agencies (especially the State Department), has adequately fulfilled its duties. Have the White House and Congress properly reviewed the Pentagon’s approach—and found its threat assessment of China convincing and ap­proved the chosen response? And if not, what are the United States’ overarching short- and long-term political strategies for dealing with an economically and militarily rising China?