白宫战略报告：对华接触政策失败 全面遏中国扩张

　　白宫制定了一份新的对华战略报告，承认过去几十年的对华接触政策已经失败。报告说，美国决定改变对华策略，采取公开施压的方法，遏制中国在经济、军事、政治等多领域的扩张。

　　这份长达20页的文件名称是《美国对中华人民共和国的战略方针》（United States Strategic Approach to The People's Republic of China）。特朗普总统已经在周二签字，白宫在周三递交国会。

　　报告对中国的经济政策、军事发展、虚假信息散布活动和侵犯人权行为等许多领域的政策提出全面的批评。

　　蓬佩奥称中共为“残忍、专制的政权”

　　美国国务卿蓬佩奥在报告发布前发表谈话，指出媒体专注于目前的病毒大流行，可能忽视了中共构成挑战的大背景。

　　蓬佩奥说：“从1949年以来，中国就沦为一个残忍、专制的政权，一个共产主义政权。几十年以来，我们以为通过贸易、科技交流、外交活动、让他们以发展中国家身份加入世贸组织，这个政权就会变得跟我们更为相似。这并没有发生。”“我们大大地低估了北京在意识形态和政治方面对自由国家的敌视程度。全世界都开始看清了这个事实。”

　　美国国务院周三宣布，已经批准一笔总额为1.8亿美元的对台军售计划。其中包括重型鱼雷、零部件，以及辅助和测试设备。国务院的声明说，这将有助于改善台湾的安全状况，有助于维持该地区的政治稳定、军事平衡和经济发展。”

　　根据各方透露出来的报告内容，大致有以下主要内容。

　　美方对40年对华接触政策结果感到失望

　　报告表达了对中国的极度失望。在过去的二十年中，美国认为如果美国扩大对中国的市场开放，增加对中国的投资，让中国能够获得美国的高级技术，并为中国培训军官，中国就会变得更加自由。但是相反，从1989年六四天安门镇压学生运动之后，中国却变得更加专制，中共在世界上在宣传其政治思想方面变得更加强势。

　　报告说：“四十多年之后，非常清楚，（美国的）这个方法低估了中国共产党限制中国的经济改革和政治改革范围的意愿。”“在过去的20多年里，改革已经放缓、停滞或者倒退。”

　　报告说，中国“选择利用建立在自由和开放基础之上的秩序，并企图按照对自己有利的方向改变国际体系。” 中国“扩大使用经济、政治和军事力量迫使民主国家不能发声的做法伤害了美国的重要利益，损害了世界各国的主权和个人的尊严。”

　　报告说，特朗普政府发现与北京保持接触除了象征性和装饰性之外“没有任何价值”。“静悄悄的外交努力证明徒劳无功，美国将公开增加（对中国的）压力。”

　　中国一边承诺，一边盗窃

　　在保护知识产权问题上，报告认为，中国可谓是劣迹斑斑。“从1980年代以来，北京签署了多项有关保护知识产权的国际协定，” 报告说，“但是，目前全球仿冒产品中有多达63%来源于中国，这给全世界和合法商业活动造成了数以千亿美元的损失。”

　　报告指出，中国在奥巴马政府时期就承诺要停止政府主导的为了商业利益而通过网络盗窃贸易机密，并在特朗普上任后的头两年重申了这样的承诺。但是，在2018年后期，美国等十几个国家报告说，中国加强了针对知识产权和获取商业情报而进行的网络攻击。

　　中国全面强化军事威胁

　　在安全方面，报告认为，中国对美国和中国的邻国都构成了挑战。报告说，中国领导人在各项公开声明里总是表示，他们反对威胁或使用武力、不干涉他国内政，同意通过和平对话来解决争端。但报告指出，北京的所作所为却背道而驰。

　　报告批评北京言行不一，违背对邻国的承诺，在黄海、东中国海、南中国海、台湾海峡，以及中印边界采取挑衅行为，以及军事高压和准军事手段相威胁。

　　对台军售取决于中国对台湾的威胁

　　在台湾问题上，报告指出，美国采取基于美中三个联合公报与台湾关系法的“一中政策”，持续与台湾维持强有力的非官方关系。美国的立场仍是两岸解决彼此之间的分歧，必须通过和平且不违反两岸人民意愿的方式进行，不得通过威胁或高压的手段。

　　报告强调，北京没有能够履行自己在相关公报中做出的承诺，大规模扩军，迫使美国不得不协助台湾军方提高自我防卫的能力。只有在台湾具有自我防卫能力的时候，才能阻止侵略，确保区域的和平稳定。

　　根据1982年一份备忘录，当时的美国总统里根坚持认为，提供台湾的武器质量取决于中华人民共和国所加诸的威胁。2019年，美国批准超过100亿美元的对台军售。

　　在人权方面，报告重申了白宫一贯的立场，对中国侵犯人权的行为，包括拘押维吾尔人等少数民族和宗教人士的做法提出批评。

　　此外，报告还表达了白宫对美中关系发展所抱的希望。报告说，特朗普政府“愿意容忍双边关系中更大的摩擦”以保护美国的利益，特别是美国的安全和经济利益。

　　报告还表示，“即使我们跟中华人民共和国展开竞争，我们也对双方在利益吻合的领域的合作表示欢迎。”报告说：“竞争不一定导致对抗和冲突。”

　　要加强亚太盟友的合作

　　最后，报告表示，美国希望与东盟、日本、印度、澳大利亚、韩国和台湾加强合作。报告说，东盟的“印太展望”（Outlook on the Indo-Pacific）、日本的自由开放的印太战略构想、印度的“区域共同安全与成长（Security and Growth for All in the Region）政策、澳大利亚的印太概念、韩国的南面政策与台湾的新南向政策等理念与美国的战略理念存在许多共同之处。

Introduction
Since the United States and the People’s Republic of China (PRC) established diplomatic
relations in 1979, United States policy toward the PRC was largely premised on a hope that
deepening engagement would spur fundamental economic and political opening in the PRC
and lead to its emergence as a constructive and responsible global stakeholder, with a more
open society. More than 40 years later, it has become evident that this approach
underestimated the will of the Chinese Communist Party (CCP) to constrain the scope of
economic and political reform in China. Over the past two decades, reforms have slowed,
stalled, or reversed. The PRC’s rapid economic development and increased engagement with
the world did not lead to convergence with the citizen-centric, free and open order as the
United States had hoped. The CCP has chosen instead to exploit the free and open rulesbased order and attempt to reshape the international system in its favor. Beijing openly
acknowledges that it seeks to transform the international order to align with CCP interests
and ideology. The CCP’s expanding use of economic, political, and military power to compel
acquiescence from nation states harms vital American interests and undermines the
sovereignty and dignity of countries and individuals around the world.
To respond to Beijing’s challenge, the Administration has adopted a competitive approach to
the PRC, based on a clear-eyed assessment of the CCP’s intentions and actions, a reappraisal
of the United States’ many strategic advantages and shortfalls, and a tolerance of greater
bilateral friction. Our approach is not premised on determining a particular end state for
China. Rather, our goal is to protect United States vital national interests, as articulated in
the four pillars of the 2017 National Security Strategy of the United States of America (NSS).
We aim to: (1) protect the American people, homeland, and way of life; (2) promote
American prosperity; (3) preserve peace through strength; and (4) advance American
influence.
Our competitive approach to the PRC has two objectives: first, to improve the resiliency of
our institutions, alliances, and partnerships to prevail against the challenges the PRC
presents; and second, to compel Beijing to cease or reduce actions harmful to the
United States’ vital, national interests and those of our allies and partners. Even as we
compete with the PRC, we welcome cooperation where our interests align. Competition need
not lead to confrontation or conflict. The United States has a deep and abiding respect for
the Chinese people and enjoys longstanding ties to the country. We do not seek to contain
China’s development, nor do we wish to disengage from the Chinese people. The United
States expects to engage in fair competition with the PRC, whereby both of our nations,
businesses, and individuals can enjoy security and prosperity.
Prevailing in strategic competition with the PRC requires cooperative engagement with
multiple stakeholders, and the Administration is committed to building partnerships to
United States Strategic Approach to
The People’s Republic of China
2
protect our shared interests and values. Vital partners of this Administration include the
Congress, state and local governments, the private sector, civil society, and academia. The
Congress has been speaking out through hearings, statements, and reports that shed light on
the CCP’s malign behavior. The Congress also provides legal authorities and resources for
the United States Government to take the actions to achieve our strategic objectives. The
Administration also recognizes the steps allies and partners have taken to develop more
clear-eyed and robust approaches toward the PRC, including the European Union’s
publication in March 2019 of EU-China: A Strategic Outlook, among others.
The United States is also building cooperative partnerships and developing positive
alternatives with foreign allies, partners, and international organizations to support the
shared principles of a free and open order. Specific to the Indo-Pacific region, many of these
initiatives are described in documents such as the Department of Defense June 2019 IndoPacific Strategy Report and the Department of State November 2019 report on A Free and
Open Indo-Pacific: Advancing a Shared Vision. The United States is working in concert with
mutually aligned visions and approaches such as the Association of Southeast Asian Nation’s
Outlook on the Indo-Pacific, Japan’s free and open Indo-Pacific vision, India’s Security and
Growth for All in the Region policy, Australia’s Indo-Pacific concept, the Republic of Korea’s
New Southern Policy, and Taiwan’s New Southbound Policy.
This report does not attempt to detail the comprehensive range of actions and policy
initiatives the Administration is carrying out across the globe as part of our strategic
competition. Rather, this report focuses on the implementation of the NSS as it applies most
directly to the PRC.
Challenges
The PRC today poses numerous challenges to United States national interests.
1. Economic Challenges
Beijing’s poor record of following through on economic reform commitments and its
extensive use of state-driven protectionist policies and practices harm United States
companies and workers, distort global markets, violate international norms, and pollute the
environment. When the PRC acceded to the World Trade Organization (WTO) in 2001,
Beijing agreed to embrace the WTO’s open market-oriented approach and embed these
principles in its trading system and institutions. WTO members expected China to continue
on its path of economic reform and transform itself into a market-oriented economy and
trade regime.
These hopes were not realized. Beijing did not internalize the norms and practices of
competition-based trade and investment, and instead exploited the benefits of WTO
membership to become the world’s largest exporter, while systematically protecting its
domestic markets. Beijing’s economic policies have led to massive industrial overcapacity
that distorts global prices and allows China to expand global market share at the expense of
3
competitors operating without the unfair advantages that Beijing provides to its firms. The
PRC retains its non-market economic structure and state-led, mercantilist approach to trade
and investment. Political reforms have likewise atrophied and gone into reverse, and
distinctions between the government and the party are eroding. General Secretary Xi’s
decision to remove presidential term limits, effectively extending his tenure indefinitely,
epitomized these trends.
In his 2018 Findings of the Investigation into China’s Acts, Policies, and Practices Related to
Technology Transfer, Intellectual Property, and Innovation under Section 301 of the Trade Act
of 1974, the United States Trade Representative (USTR) determined that numerous acts,
policies, and practices of the PRC government were unreasonable or discriminatory, and
burden or restrict United States commerce. Based on a rigorous investigation, USTR found
that the PRC: (1) requires or pressures United States companies to transfer their technology
to Chinese entities; (2) places substantial restrictions on United States companies’ ability to
license their technology on market terms; (3) directs and unfairly facilitates acquisition of
United States companies and assets by domestic firms to obtain cutting edge technologies;
and (4) conducts and supports unauthorized cyber intrusions into United States companies’
networks to access sensitive information and trade secrets.
The list of Beijing’s commitments to cease its predatory economic practices is littered with
broken and empty promises. In 2015, Beijing promised that it would stop governmentdirected cyber-enabled theft of trade secrets for commercial gain, reiterating that same
promise in 2017 and 2018. Later in 2018, the United States and a dozen other countries
attributed global computer intrusion campaigns, targeting intellectual property and
confidential business information, to operators affiliated with the PRC’s Ministry of State
Security – a contravention of Beijing’s 2015 commitment. Since the 1980s, Beijing has signed
multiple international agreements to protect intellectual property. Despite this, more than
63 percent of the world’s counterfeits originate in China, inflicting hundreds of billions of
dollars of damage on legitimate businesses around the world.
While Beijing acknowledges that China is now a “mature economy,” the PRC continues to
argue in its dealings with international bodies, including the WTO, that it is still a “developing
country.” Despite being the top importer of high technology products and ranking second
only to the United States in terms of gross domestic product, defense spending, and outward
investment, China self-designates as a developing country to justify policies and practices
that systematically distort multiple sectors globally, harming the United States and other
countries.
One Belt One Road (OBOR) is Beijing’s umbrella term to describe a variety of initiatives,
many of which appear designed to reshape international norms, standards, and networks to
advance Beijing’s global interests and vision, while also serving China’s domestic economic
requirements. Through OBOR and other initiatives, the PRC is expanding the use of Chinese
industrial standards in key technology sectors, part of an effort to strengthen its own
companies’ position in the global marketplace at the expense of non-Chinese firms. Projects
that Beijing has labeled OBOR include: transportation, information and communications
technology and energy infrastructure; industrial parks; media collaboration; science and
4
technology exchanges; programs on culture and religion; and even military and security
cooperation. Beijing is also seeking to arbitrate OBOR-related commercial disputes through
its own specialized courts, which answer to the CCP. The United States welcomes
contributions by China to sustainable, high-quality development that accords with
international best practices, but OBOR projects frequently operate well outside of these
standards and are characterized by poor quality, corruption, environmental degradation, a
lack of public oversight or community involvement, opaque loans, and contracts generating
or exacerbating governance and fiscal problems in host nations.
Given Beijing’s increasing use of economic leverage to extract political concessions from or
exact retribution against other countries, the United States judges that Beijing will attempt
to convert OBOR projects into undue political influence and military access. Beijing uses a
combination of threat and inducement to pressure governments, elites, corporations, think
tanks, and others – often in an opaque manner – to toe the CCP line and censor free
expression. Beijing has restricted trade and tourism with Australia, Canada, South Korea,
Japan, Norway, the Philippines, and others, and has detained Canadian citizens, in an effort
to interfere in these countries’ internal political and judicial processes. After the Dalai Lama
visited Mongolia in 2016, the PRC government imposed new tariffs on land-locked
Mongolia’s mineral exports passing through China, temporarily paralyzing Mongolia’s
economy.
Beijing seeks global recognition for its environmental efforts and claims to promote “green
development.” China, however, has been the world’s largest greenhouse gas emitter by a
wide margin for more than a decade. Beijing has put forward vague and unenforceable
emissions reduction commitments that allow China’s emissions to keep growing until
“around 2030.” China’s planned growing emissions will outweigh the reductions from the
rest of the world combined. Chinese firms also export polluting coal-fired power plants to
developing countries by the hundreds. The PRC is also the world’s largest source of marine
plastic pollution, discharging over 3.5 million metric tons into the ocean each year. The PRC
ranks first in the world for illegal, unreported, and unregulated fishing in coastal nations’
waters around the world, threatening local economies and harming the marine environment.
Chinese leaders’ unwillingness to rein in these globally harmful practices does not match
their rhetorical promises of environmental stewardship.
2. Challenges to Our Values
The CCP promotes globally a value proposition that challenges the bedrock American belief
in the unalienable right of every person to life, liberty, and the pursuit of happiness. Under
the current generation of leadership, the CCP has accelerated its efforts to portray its
governance system as functioning better than those of what it refers to as “developed,
western countries.” Beijing is clear that it sees itself as engaged in an ideological competition
with the West. In 2013, General Secretary Xi called on the CCP to prepare for a “long-term
period of cooperation and conflict” between two competing systems and declared that
“capitalism is bound to die out and socialism is bound to win.”
5
The CCP aims to make China a “global leader in terms of comprehensive national power and
international influence,” as General Secretary Xi expressed in 2017, by strengthening what
it refers to as “the system of socialism with Chinese characteristics.” This system is rooted
in Beijing’s interpretation of Marxist-Leninist ideology and combines a nationalistic, singleparty dictatorship; a state-directed economy; deployment of science and technology in the
service of the state; and the subordination of individual rights to serve CCP ends. This runs
counter to principles shared by the United States and many likeminded countries of
representative government, free enterprise, and the inherent dignity and worth of every
individual.
Internationally, the CCP promotes General Secretary Xi’s vision for global governance under
the banner of “building a community of common destiny for mankind.” Beijing’s efforts to
compel ideological conformity at home, however, present an unsettling picture of what a
CCP-led “community” looks like in practice: (1) an anticorruption campaign that has purged
political opposition; (2) unjust prosecutions of bloggers, activists, and lawyers;
(3) algorithmically determined arrests of ethnic and religious minorities; (4) stringent
controls over and censorship of information, media, universities, businesses, and
non-governmental organizations; (5) surveillance and social credit scoring of citizens,
corporations, and organizations; and (6) and arbitrary detention, torture, and abuse of
people perceived to be dissidents. In a stark example of domestic conformity, local officials
publicized a book burning event at a community library to demonstrate their ideological
alignment to “Xi Jinping Thought.”
One disastrous outgrowth of such an approach to governance is Beijing’s policies in Xinjiang,
where since 2017, authorities have detained more than a million Uighurs and members of
other ethnic and religious minority groups in indoctrination camps, where many endure
forced labor, ideological indoctrination, and physical and psychological abuse. Outside these
camps, the regime has instituted a police state employing emerging technologies such as
artificial intelligence and biogenetics to monitor ethnic minorities’ activities to ensure
allegiance to the CCP. Widespread religious persecution – of Christians, Tibetan Buddhists,
Muslims, and members of Falun Gong – includes the demolition and desecration of places of
worship, arrests of peaceful believers, forced renunciations of faith, and prohibitions on
raising children in traditions of faith.
The CCP’s campaign to compel ideological conformity does not stop at China’s borders. In
recent years, Beijing has intervened in sovereign nations’ internal affairs to engineer consent
for its policies. PRC authorities have attempted to extend CCP influence over discourse and
behavior around the world, with recent examples including companies and sports teams in
the United States and the United Kingdom and politicians in Australia and Europe. PRC
actors are exporting the tools of the CCP’s techno-authoritarian model to countries around
the world, enabling authoritarian states to exert control over their citizens and surveil
opposition, training foreign partners in propaganda and censorship techniques, and using
bulk data collection to shape public sentiment.
China’s party-state controls the world’s most heavily resourced set of propaganda tools.
Beijing communicates its narrative through state-run television, print, radio, and online
6
organizations whose presence is proliferating in the United States and around the world.
The CCP often conceals its investments in foreign media entities. In 2015, China Radio
International was revealed to control 33 radio stations in 14 countries via shell entities, and
to subsidize multiple intermediaries through providing free, pro-Beijing content.
Beyond the media, the CCP uses a range of actors to advance its interests in the United States
and other open democracies. CCP United Front organizations and agents target businesses,
universities, think tanks, scholars, journalists, and local, state, and Federal officials in the
United States and around the world, attempting to influence discourse and restrict external
influence inside the PRC.

Beijing regularly attempts to compel or persuade Chinese nationals and others to undertake
a range of malign behaviors that threaten United States national and economic security, and
undermine academic freedom and the integrity of the United States research and
development enterprise. These behaviors include misappropriation of technology and
intellectual property, failure to appropriately disclose relationships with foreign
government sponsored entities, breaches of contract and confidentiality, and manipulation
of processes for fair and merit-based allocation of Federal research and development
funding. Beijing also attempts to compel Chinese nationals to report on and threaten fellow
Chinese students, protest against events that run counter to Beijing’s political narrative, and
otherwise restrict the academic freedom that is the hallmark and strength of the American
education system.
PRC media entities, journalists, academics, and diplomats are free to operate in the
United States, but Beijing denies reciprocal access to American counterpart institutions and
officials. The PRC government routinely denies United States officials, including the
United States Ambassador to the PRC, access to Department of State-funded American
Cultural Centers, which are hosted in Chinese universities to share American culture with
the Chinese people. Foreign reporters working in the PRC often face harassment and
intimidation.
3. Security Challenges
As China has grown in strength, so has the willingness and capacity of the CCP to employ
intimidation and coercion in its attempts to eliminate perceived threats to its interests and
advance its strategic objectives globally. Beijing’s actions belie Chinese leaders’
proclamations that they oppose the threat or use of force, do not intervene in other countries’
internal affairs, or are committed to resolving disputes through peaceful dialogue. Beijing
contradicts its rhetoric and flouts its commitments to its neighbors by engaging in
provocative and coercive military and paramilitary activities in the Yellow Sea, the East and
South China Seas, the Taiwan Strait, and Sino-Indian border areas.
In May 2019, the Department of Defense issued its annual report to the Congress, Military
and Security Developments Involving the PRC, assessing current and future trajectories of
China’s military-technological development, security and military strategies, and People’s
Liberation Army (PLA) organizational and operational concepts. In July 2019, the PRC
7
Minister of Defense publicly acknowledged that OBOR is linked to the PRC’s aspirational
expansion of PLA presence overseas, including locations such as the Pacific Islands and the
Caribbean.
Beijing’s military buildup threatens United States and allied national security interests and
poses complex challenges for global commerce and supply chains. Beijing’s Military-Civil
Fusion (MCF) strategy gives the PLA unfettered access into civil entities developing and
acquiring advanced technologies, including state-owned and private firms, universities, and
research programs. Through non-transparent MCF linkages, United States and other foreign
companies are unwittingly feeding dual-use technologies into PRC military research and
development programs, strengthening the CCP’s coercive ability to suppress domestic
opposition and threaten foreign countries, including United States allies and partners.
The PRC’s attempts to dominate the global information and communications technology
industry through unfair practices is reflected in discriminatory regulations like the PRC
National Cyber Security Law, which requires companies to comply with Chinese data
localization measures that enable CCP access to foreign data. Other PRC laws compel
companies like Huawei and ZTE to cooperate with Chinese security services, even when they
do business abroad, creating security vulnerabilities for foreign countries and enterprises
utilizing Chinese vendors’ equipment and services.
Beijing refuses to honor its commitment to provide travel documents for Chinese citizens
with orders of removal from the United States in a timely and consistent manner, effectively
blocking their removals from our country and creating security risks for American
communities. In addition, the PRC’s violations of our bilateral consular treaty puts
United States citizens at risk in China, with many Americans detrimentally affected by the
PRC government’s coercive exit bans and wrongful detentions.
Approach
The NSS demands that the United States “rethink the policies of the past two decades –
policies based on the assumption that engagement with rivals and their inclusion in
international institutions and global commerce would turn them into benign actors and
trustworthy partners. For the most part, this premise turned out to be false. Rival actors use
propaganda and other means to try to discredit democracy. They advance anti-Western
views and spread false information to create divisions among ourselves, our allies, and our
partners.”
Guided by a return to principled realism, the United States is responding to the CCP’s direct
challenge by acknowledging that we are in a strategic competition and protecting our
interests appropriately. The principles of the United States’ approach to China are
articulated both in the NSS and our vision for the Indo-Pacific region – sovereignty, freedom,
openness, rule of law, fairness, and reciprocity. United States-China relations do not
determine our Indo-Pacific strategy, but rather fall within that strategy and the overarching
8
NSS. By the same token, our vision of a free and open Indo-Pacific region does not exclude
China.
The United States holds the PRC government to the same standards and principles that apply
to all nations. We believe this is the treatment that the people of China want and deserve
from their own government and from the international community. Given the strategic
choices China’s leadership is making, the United States now acknowledges and accepts the
relationship with the PRC as the CCP has always framed it internally: one of great power
competition.
United States policies are not premised on an attempt to change the PRC’s domestic
governance model, nor do they make concessions to the CCP’s narratives of exceptionalism
and victimhood. Rather, United States policies are designed to protect our interests and
empower our institutions to withstand the CCP’s malign behavior and collateral damage
from the PRC’s internal governance problems. Whether the PRC eventually converges with
the principles of the free and open order can only be determined by the Chinese people
themselves. We recognize that Beijing, not Washington, has agency over and responsibility
for the PRC government’s actions.
The United States rejects CCP attempts at false equivalency between rule-of-law and ruleby-law; between counterterrorism and oppression; between representative governance and
autocracy; and between market-based competition and state-directed mercantilism. The
United States will continue to challenge Beijing’s propaganda and false narratives that
distort the truth and attempt to demean American values and ideals.
Similarly, the United States does not and will not accommodate Beijing’s actions that weaken
a free, open, and rules-based international order. We will continue to refute the CCP’s
narrative that the United States is in strategic retreat or will shirk our international security
commitments. The United States will work with our robust network of allies and likeminded partners to resist attacks on our shared norms and values, within our own
governance institutions, around the world, and in international organizations.
The American people’s generous contributions to China’s development are a matter of
historical record – just as the Chinese people’s remarkable accomplishments in the era of
Reform and Opening are undeniable. However, the negative trend lines of Beijing’s policies
and practices threaten the legacy of the Chinese people and their future position in the world.
Beijing has repeatedly demonstrated that it does not offer compromises in response to
American displays of goodwill, and that its actions are not constrained by its prior
commitments to respect our interests. As such, the United States responds to the PRC’s
actions rather than its stated commitments. Moreover, we do not cater to Beijing’s demands
to create a proper “atmosphere” or “conditions” for dialogue.
Likewise, the United States sees no value in engaging with Beijing for symbolism and
pageantry; we instead demand tangible results and constructive outcomes. We acknowledge
and respond in kind to Beijing’s transactional approach with timely incentives and costs, or
9
credible threats thereof. When quiet diplomacy proves futile, the United States will increase
public pressure on the PRC government and take action to protect United States interests by
leveraging proportional costs when necessary.
The PRC government has fallen short of its commitments in many areas including: trade and
investment; freedoms of expression and belief; political interference; freedoms of navigation
and overflight; cyber and other types of espionage and theft; weapons proliferation;
environmental protection; and global health. Agreements with Beijing must include
stringent verification and enforcement mechanisms.
We speak candidly with the Chinese people and expect honesty from PRC leaders. In matters
of diplomacy, the United States responds appropriately to the CCP’s insincere or vague
threats, and stands up alongside our allies and partners to resist coercion. Through our
continuous and frank engagement, the United States welcomes cooperation by China to
expand and work toward shared objectives in ways that benefit the peace, stability, and
prosperity of the world. Our approach does not exclude the PRC. The United States stands
ready to welcome China’s positive contributions.
As the above tenets of our approach imply, competition necessarily includes engagement
with the PRC, but our engagements are selective and results-oriented, with each advancing
our national interests. We engage with the PRC to negotiate and enforce commitments to
ensure fairness and reciprocity; clarify Beijing’s intentions to avoid misunderstanding; and
resolve disputes to prevent escalation. The United States is committed to maintaining open
channels of communication with the PRC to reduce risks and manage crises. We expect the
PRC to also keep these channels open and responsive.
Implementation
In accordance with the President’s NSS, the political, economic, and security policies outlined
in this report seek to protect the American people and homeland, promote American
prosperity, preserve peace through strength, and advance a free and open vision abroad.
During the first 3 years of the Administration, the United States has taken significant steps
in implementing this strategy as it applies to China.
1. Protect the American People, the Homeland, and the American Way of Life
The United States Department of Justice (DOJ)’s China Initiative and Federal Bureau of
Investigation are directing resources to identify and prosecute trade secrets theft, hacking,
and economic espionage; and increasing efforts to protect against malign foreign investment
in United States infrastructure, supply chain threats, and foreign agents seeking to influence
American policy. For example, DOJ informed PRC state media company CGTN-America of its
obligation to register as a foreign agent as specified under the Foreign Agents Registration
Act (FARA), which obligates registrants to disclose their activities to Federal authorities and
10
appropriately label information materials they distribute. CGTN-America subsequently
registered under FARA.
The Administration is also responding to CCP propaganda in the United States by
highlighting malign behavior, countering false narratives, and compelling transparency.
United States officials, including those from the White House and the Departments of State,
Defense, and Justice, are leading efforts to educate the American public about the PRC
government’s exploitation of our free and open society to push a CCP agenda inimical to
United States interests and values. In an effort to achieve reciprocity of access, the
Department of State has implemented a policy requiring Chinese diplomats to notify the
United States Government before meeting with state and local government officials and
academic institutions.
The Administration is raising awareness of and actively combatting Beijing’s co-optation and
coercion of its own citizens and others in United States academic institutions, beyond
traditional espionage and influence efforts. We are working with universities to protect the
rights of Chinese students on American campuses, provide information to counter CCP
propaganda and disinformation, and ensure an understanding of ethical codes of conduct in
an American academic environment.
Chinese students represent the largest cohort of foreign students in the United States today.
The United States values the contributions of Chinese students and researchers. As of 2019,
the number of Chinese students and researchers in the United States has reached an all-time
high, while the number of student visa denials to Chinese applicants has steadily declined.
The United States strongly supports the principles of open academic discourse and
welcomes international students and researchers conducting legitimate academic pursuits;
we are improving processes to screen out the small minority of Chinese applicants who
attempt to enter the United States under false pretenses or with malign intent.
In the United States research community, Federal agencies such as the National Institutes of
Health and the Department of Energy have updated or clarified regulations and procedures
to ensure compliance with applicable standards of conduct and reporting, in order to
improve transparency and prevent conflicts of interest. The National Science and
Technology Council’s Joint Committee on the Research Environment is developing standards
for Federally-funded research, and best practices for United States research institutions. The
Department of Defense is working to ensure grantees do not also have contracts with China’s
talent recruitment programs, while also continuing to welcome foreign researchers.
To prevent foreign malign actors from gaining access to United States information networks,
the President issued the “Executive Order on Securing the Information and Communications
Technology and Services Supply Chain” and the “Executive Order on Establishing the
Committee for the Assessment of Foreign Participation in the United States
Telecommunications Services Sector.” The implementation of these Executive Orders will
prevent certain companies associated with or answering to the intelligence and security
apparatus of foreign adversaries from, for example, readily accessing the private and
sensitive information of the United States Government, the United States private sector, and
11
individual Americans. To ensure protection of our information worldwide, including
sensitive military and intelligence data, the United States is actively engaging with our allies
and partners, including in multilateral fora, to promote a set of common standards for secure,
resilient, and trusted communications platforms that underpin the global information
economy. To compel Beijing to adhere to norms of responsible state behavior, the
United States is working with allies and like-minded partners to attribute and otherwise
deter malicious cyber activities.
The Administration is implementing the Foreign Investment Risk Review Modernization Act
to update and strengthen the capacity of the Committee on Foreign Investment in the
United States (CFIUS) to address growing national security concerns over foreign
exploitation of investment structures, which previously fell outside CFIUS jurisdiction. This
includes preventing Chinese companies from exploiting access to United States innovation
through minority investments in order to modernize the Chinese military. The United States
has updated its export control regulations, particularly in light of Beijing’s whole-of-society
MCF strategy and its efforts to acquire advanced technologies related to hypersonics,
quantum computing, artificial intelligence, biotechnology, and other emerging and
foundational technologies. We are also engaging allies and partners to develop their own
foreign investment screening mechanisms, and to update and implement export controls
collaboratively through multilateral regimes and other forums.
The United States Government is also taking concrete actions to protect the American
consumer from counterfeit and substandard products. Between 2017 and 2018, the
United States Department of Homeland Security seized more than 59,000 shipments of
counterfeit goods, produced in the PRC, valued at more than $2.1 billion. This represents
five times the total shipments and value seized from all other foreign countries combined.
In addition to falsely branded apparel, footwear, handbags, and watches, United States
Customs and Border Protection intercepted three shipments containing 53,000 illegal
Chinese gun parts and electronics that could have compromised the security and privacy of
American businesses and consumers. United States law enforcement agencies are also
targeting counterfeit pharmaceuticals and cosmetics originating from China, which have
been found to contain high levels of contaminants, including bacteria and animal waste that
pose a danger to American consumers.
The United States is working with Chinese authorities to stem the deadly flow of illicit
Chinese fentanyl from the PRC to the United States. In December 2018, the President secured
a commitment from his Chinese counterpart to control all forms of fentanyl in the PRC. With
the Chinese regulatory regime in place since May 2019, United States and PRC law
enforcement agencies are sharing intelligence and coordinating to set conditions for
enforcement actions that will deter Chinese drug producers and traffickers. The
United States is also working with China’s postal agencies to improve tracking of small
parcels for law enforcement purposes.
12
2. Promote American Prosperity
In response to the PRC’s documented unfair and abusive trade practices and industrial
policies, the Administration is taking strong actions to protect American businesses,
workers, and farmers, and to put an end to Beijing’s practices that have contributed to a
hollowing-out of the United States manufacturing base. The United States is committed to
rebalancing the United States-China economic relationship. Our whole-of-government
approach supports fair trade and advances United States competitiveness, promotes
United States exports, and breaks down unjust barriers to United States trade and
investment. Having failed since 2003 to persuade Beijing to adhere to its economic
commitments through regular, high-level dialogues, the United States is confronting China’s
market-distorting forced technology transfer and intellectual property practices by
imposing costs in the form of tariffs levied on Chinese goods coming into the United States.
Those tariffs will remain in place until a fair Phase Two trade deal is agreed to by the United
States and the PRC.
In response to Beijing’s repeated failure to reduce or eliminate its market-distorting
subsidies and overcapacity, the United States imposed tariffs to protect our strategically
important steel and aluminum industries. For those unfair Chinese trade practices that are
subject to dispute settlement at the WTO, the United States continues to pursue and win
multiple cases. Finally, to crack down on China’s dumping and subsidies across a broad
range of industries, the Department of Commerce is making greater utility of United States
antidumping and countervailing duties laws than in past administrations.
In January 2020, the United States and the PRC signed Phase One of an economic and trade
agreement that requires structural reforms and other changes to China’s economic and trade
regime, addressing several longstanding United States concerns. The agreement prohibits
the PRC from forcing or pressuring foreign companies to transfer their technology as a
condition for doing business in China; strengthens protection and enforcement of
intellectual property in China in all key areas; creates new market opportunities in China for
United States agriculture and financial services by addressing policy barriers; and addresses
longstanding, unfair currency practices. The agreement also establishes a strong dispute
resolution mechanism that ensures prompt and effective implementation and enforcement.
By addressing structural barriers to trade and making the commitments fully enforceable,
the Phase One agreement will expand United States exports to China. As part of this
agreement, the PRC committed over the next 2 years to increase imports of United States
goods and services by no less than $200 billion in four broad categories: manufactured
goods, agriculture, energy, and services. This agreement marks critical progress toward a
more balanced trade relationship and a more level playing field for American workers and
companies.
Domestically, the Administration is taking steps to strengthen the United States economy
and promote economic sectors of the future, such as 5G technology, through tax reforms and
a robust deregulatory agenda. The President’s “Executive Order on Maintaining American
Leadership in Artificial Intelligence” is an example of a United States Government initiative
13
to promote investment and collaboration to ensure the United States continues to lead in
innovation and setting standards for a growing industry.
Together with other likeminded nations, the United States promotes an economic vision
based on principles of sovereignty, free markets, and sustainable development. Alongside
the European Union and Japan, the United States is engaged in a robust trilateral process to
develop disciplines for state-owned enterprises, industrial subsidies, and forced technology
transfers. We will also continue to work with our allies and partners to ensure that
discriminatory industrial standards do not become global standards. As the world’s most
valuable consumer market, largest source of foreign direct investment, and leading
wellspring of global technological innovation, the United States engages extensively with
allies and partners to evaluate shared challenges and coordinate effective responses to
ensure continued peace and prosperity. We work closely with United States companies to
build their competitiveness at home and abroad while fostering sustainable development
through programs such as Prosper Africa, America Crece in Latin America and the Caribbean,
and Enhancing Development and Growth through Energy in the Indo-Pacific region.
3. Preserve Peace through Strength
The 2018 National Defense Strategy (NDS) prioritizes long-term competition with China and
emphasizes modernization and partnerships to counter the PLA’s technological
advancements, force development, and growing international presence and assertiveness.
As described in the Nuclear Posture Review, the Administration is prioritizing the
modernization of the nuclear triad, including the development of supplementary capabilities
designed to deter Beijing from using its weapons of mass destruction or conducting other
strategic attacks. Meanwhile, the United States continues to urge China’s leaders to come to
the table and begin arms control and strategic risk reduction discussions as a nuclear power
with a modern and growing nuclear arsenal and the world’s largest collection of
intermediate range delivery systems. The United States believes it is in the interest of all
nations to improve Beijing’s transparency, prevent miscalculations, and avoid costly arms
buildups.
The Department of Defense is moving quickly to deploy hypersonic platforms, increasing
investments in cyber and space capabilities, and developing more lethal fires based on
resilient, adaptive, and cost-effective platforms. Together, these capabilities are intended to
deter and counter Beijing’s growing ambitions and the PLA’s drive toward technological
parity and superiority.
As part of our worldwide freedom of navigation operations program, the United States is
pushing back on Beijing’s hegemonic assertions and excessive claims. The United States
military will continue to exercise the right to navigate and operate wherever international
law allows, including in the South China Sea. We are speaking up for regional allies and
partners, and providing security assistance to help them build capacity to withstand Beijing’s
attempts to use its military, paramilitary, and law enforcement forces to coerce and prevail
in disputes. In 2018, the United States military withdrew the invitation for the PLA to
14
participate in the biennial Rim of the Pacific exercise due to Beijing’s deployment of
advanced missile systems onto manmade features in the South China Sea.
Stronger alliances and partnerships are a cornerstone of the NDS. The United States is
building partner capacity and deepening interoperability to develop a combat-credible
forward operating presence, fully integrated with allies and partners to deter and deny PRC
aggression. The Administration’s Conventional Arms Transfer policy aims to promote
United States arms sales and accelerate the transformation of partner military capabilities
in a strategic and complementary manner. In June 2019, the Department of Defense released
its first Indo-Pacific Strategy Report, articulating the Department’s implementation of the
NDS and our whole-of-government strategy for the Indo-Pacific region.
The United States will continue to maintain strong unofficial relations with Taiwan in
accordance with our “One China” policy, based on the Taiwan Relations Act and the
three United States-PRC Joint Communiques. The United States maintains that any
resolution of cross-Strait differences must be peaceful and according to the will of the people
on both sides, without resorting to threat or coercion. Beijing’s failure to honor its
commitments under the communiques, as demonstrated by its massive military buildup,
compels the United States to continue to assist the Taiwan military in maintaining a credible
self-defense, which deters aggression and helps to ensure peace and stability in the region.
In a 1982 memorandum, President Ronald Reagan insisted “that the quantity and quality of
the arms provided Taiwan be conditioned entirely on the threat posed by the PRC.” In 2019,
the United States approved more than $10 billion of arms sales to Taiwan.
The United States remains committed to maintaining a constructive, results-oriented
relationship with the PRC. The United States conducts defense contacts and exchanges with
the PRC to communicate strategic intent; prevent and manage crises; reduce the risks of
miscalculation and misunderstanding that could escalate into conflict; and cooperate in
areas of shared interest. The United States military engages with the PLA to develop effective
crisis communication mechanisms, including responsive channels for de-escalation in
unplanned scenarios.
4. Advance American Influence
For the past seven decades, the free and open international order has provided the stability
to allow sovereign, independent states to flourish and contribute to unprecedented global
economic growth. As a large, developed country and a major beneficiary of this order, the
PRC should help guarantee freedom and openness for other nations around the globe. When
Beijing instead promotes or abets authoritarianism, self-censorship, corruption, mercantilist
economics, and intolerance of ethnic and religious diversity, the United States leads
international efforts to resist and counter these malign activities.
In 2018 and 2019, the Secretary of State hosted the first two gatherings of the Ministerial to
Advance Religious Freedom. Along with the President’s unprecedented Global Call to Protect
Religious Freedom during the United Nations General Assembly (UNGA) in September 2019,
these events brought together global leaders to address religious persecution around the
15
world. During both ministerials, the United States and partner countries released joint
statements calling on the PRC government to respect the rights of Uighur and other Turkic
Muslims, Tibetan Buddhists, Christians, and Falun Gong adherents, all of whom face
repression and persecution in China. In February 2020, the Department of State launched
the first ever International Religious Freedom Alliance with 25 likeminded partners to
defend the right of every person to worship without fear. The President met with Chinese
dissidents and survivors on the margins of the 2019 Ministerial, and he shared the stage
during UNGA with victims of religious persecution from China. The United States also
continues to support human rights defenders and independent civil society working in or on
China.
In October 2019 at the United Nations in New York, the United States joined likeminded
nations in condemning Beijing’s ongoing human rights violations and other repressive
policies in Xinjiang that threaten international peace and security. The latter event followed
United States Government actions to stop United States exports to select Chinese
government agencies and surveillance technology companies complicit in the Xinjiang
human rights abuses and to deny United States visas for Chinese officials, and their family
members, responsible for violating Beijing’s international human rights commitments. The
United States has also begun actions to block imports of Chinese goods produced using
forced labor in Xinjiang.
The United States will continue to take a principled stand against the use of our technology
to support China’s military and its technology-enabled authoritarianism, working in
conjunction with likeminded allies and partners. In doing so, we will implement policies that
keep pace with rapid technological change and PRC efforts to blend civil and military uses
and compel companies to support China’s security and intelligence services.
These efforts demonstrate United States commitment to the fundamental values and norms
that have served as the foundation of the international system since the end of the Second
World War. While the United States has no desire to interfere in the PRC’s internal affairs,
Washington will continue to be candid when Beijing strays from its international
commitments and responsible behavior, especially when United States interests are at stake.
For example, the United States has significant interests in the future of Hong Kong.
Approximately 85,000 United States citizens and more than 1,300 United States businesses
reside in Hong Kong. The President, the Vice President, and the Secretary of State have
repeatedly called on Beijing to honor the 1984 Sino-British Joint Declaration and preserve
Hong Kong’s high degree of autonomy, rule of law, and democratic freedoms, which enable
Hong Kong to remain a successful hub of international business and finance.
The United States is expanding its role as an Indo-Pacific nation that promotes free
enterprise and democratic governance. In November 2019, the United States, Japan, and
Australia launched the Blue Dot Network to promote transparently-financed, high quality
infrastructure through private sector led development around the world, which will add to
the nearly 1 trillion dollars of United States direct investment in the Indo-Pacific region
alone. At the same time, the Department of State issued a detailed progress report on the
16
implementation of our whole-of-government strategy for the Indo-Pacific region:
A Free and Open Indo-Pacific: Advancing a Shared Vision.
Conclusion
The Administration’s approach to the PRC reflects a fundamental reevaluation of how the
United States understands and responds to the leaders of the world’s most populous country
and second largest national economy. The United States recognizes the long-term strategic
competition between our two systems. Through a whole-of-government approach and
guided by a return to principled realism, as articulated by the NSS, the United States
Government will continue to protect American interests and advance American influence. At
the same time, we remain open to constructive, results-oriented engagement and
cooperation from China where our interests align. We continue to engage with PRC leaders
in a respectful yet clear-eyed manner, challenging Beijing to uphold its commitments.