But such a campaign would not be limited to the Taiwan Straits, with Colby observing that “if the United States forswore the ability to attack targets on the Chinese mainland that were materially involved in the war, it would gravely weaken its ability to defend Taiwan. After all, treating mainland China as off-limits would raise questions about American resolve.” And yet the consequence of such an approach would surely be retaliation, which “would likely include at least some air and naval bases in the United States as well as cyber and space assets. The defenders should therefore propose and seek acceptance only of rule sets, Colby argues, “whose implications they can live with”. How much bombardment of the American mainland the American public can live with for Taiwan’s sake is, of course, an open question.
The essential thrust of Colby’s argument is that America is unlikely to win an all-out war with China: the costs for America will be too high, and China’s geographic and industrial advantages are too great. In his words, “The plain reality is that China is too powerful for the United States simply to make it cease fighting; the United States and any engaged allies and partners would therefore need to persuade it to do so.” Ultimately then, it is on America’s diplomatic and military powers of persuasion that his strategy stands or falls. Firstly, he proposes to “bind” American partners and allies into a web of Pacific alliances, through treaties and joint military basing and operations in the region (we think here of AUKUS). Even if, for European allies like ourselves, our military contribution will be marginal to any Pacific campaign, the moral shock of being targeted by the Chinese in a pre-emptive strike might “bind” us further into the American-led system, Colby argues, as the outraged public demands a response to Chinese aggression.
Indeed, such political considerations are essential to maintaining the great, if loose, alliance system to maintain American hegemony in Asia. China must be provoked into initiating any escalation of the conflict, so that it will always appear the aggressor; it must be permitted to strike as indiscriminately as possible (Colby urges the US not to provide potential civilian targets with air defences, reasoning that collateral damage will whip up the public anger against China necessary to winning a war); at every stage, China must be manoeuvred into situations where it is forced to escalate the conflict and so lose world sympathy, or back down. Over time, he reasons, the Chinese leadership will realise that the costs of seizing Taiwan will outweigh the benefits, and will be reassured enough by American pledges that the US will not aim to launch a wider war or dismantle their state that they will sue for peace.
Perhaps. It is a strategy that involves a great deal of careful, narrowly applied violence, which depends on what is ultimately the hope that China agrees to fight a war on America’s terms, playing to America’s advantages and negating its own. His hope is that by forcing Beijing to escalate the conflict beyond Taiwan, the American public, along with the publics of its allied nations, will fling themselves into support for a war to deny an aggressive China mastery of Asia; and that by forcing China to escalate, the war is, paradoxically, kept limited to the narrow bounds in which American victory is, though far from certain, at least possible.
This is a difficult balance, as Colby himself makes clear, “it is hard to overstate the scale and sophistication of the resources Beijing can bring to bear to subordinate Taiwan,” and even fighting a war against China on America’s chosen terms “would be exceptionally challenging”. And yet, Colby argues, it is necessary. Will the American public agree? It is difficult, from where we stand, to see that they agree on anything much. As Colby himself observes, “Americans may not be convinced that taking a leading role in denying another state hegemony over a distant region, however key, is worth the sacrifice and risk entailed”. Colby argues his case well, but there are a lot of ifs to think about here, not least for modestly capable allies like Britain plunging headlong into an Indo-Pacific tilt.
Colby himself argues that European countries such Britain would serve the American war effort more effectively by taking a greater role in the defence of Europe itself. Unlike British and German defence analysts who, for their own different reasons, are aghast at the prospect of American diminution of its commitment to Nato, Colby stresses that America’s interests in Europe are by a long way secondary to its interests in Asia, and that European countries — particularly Germany — should be obliged to take up the slack.
A foreign policy Realist, Colby rightly urges America to give up its draining Middle Eastern commitments, to force Europeans to defend themselves, to extricate itself from the web of defence guarantees it has given to nations of no meaningful strategic importance and to focus all its efforts towards maintaining its global dominance through the defence of Taiwan against a rising China. Colby’s strategy rightly roots itself firmly in a clear-eyed understanding of America’s diminished global reach following its unchallenged period of post-Cold War dominance, and indeed, Biden’s foreign policy so far has followed Trump’s (and Colby’s) Realist lead. Yet even after its pragmatic listing of all the ways it could fail and the great odds stacked against victory, Colby’s analysis seems to glide over what is surely America’s greatest weakness.
Which actual or potential ally can be certain that an internally-divided America, whose chaotic politics is beamed daily across the world, has the solidarity and wherewithal to maintain even a limited shooting war at the other end of the world against the most powerful rival it has ever faced? How well-placed is 2021 America to walk such a narrow political, diplomatic and military tightrope, where the prospect of success is so slender, and where the risks of escalation are so great? Colby places great emphasis on the difficulties the US will find in holding together a fractious alliance in East Asia: yet whether it can hold itself together long enough to fight and win a costly major war is surely the greatest question challenging the empire’s survival.
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