Analysis
The China-Russia Axis Takes Shape
The bond has been decades in the making, but Russia’s war in Ukraine has tightened their embrace.
An illustration shows half faces of Chinese President Xi Jinping and Russian President Putin for a story about a ChiRussia alliance.
In July, nearly a dozen Chinese and Russian warships conducted 20 combat exercises in the Sea of Japan before beginning a 2,300-nautical-mile joint patrol, including into the waters near Alaska. These two operations, according to the Chinese defense ministry, “reflect the level of the strategic mutual trust” between the two countries and their militaries.
In July, nearly a dozen Chinese and Russian warships conducted 20 combat exercises in the Sea of Japan before beginning a 2,300-nautical-mile joint patrol, including into the waters near Alaska. These two operations, according to the Chinese defense ministry, “reflect the level of the strategic mutual trust” between the two countries and their militaries.
The increasingly close relationship between China and Russia has been decades in the making, but Russia’s invasion of Ukraine has tightened their embrace. Both countries made a clear strategic choice to prioritize relations with each other, given what they perceive as a common threat from the U.S.-led West. The deepening of bilateral ties is accompanied by a joint push for global realignment as the two countries use non-Western multilateral institutions–such as the BRICS forum and the Shanghai Cooperation Organisation (SCO)–to expand their influence in the developing world. Although neither Beijing nor Moscow currently has plans to establish a formal military alliance, major shocks, such as a Sino-U.S. conflict over Taiwan, could yet bring it about.
China and Russia’s push for better relations began after the end of the Cold War. Moscow became frustrated with its loss of influence and status, and Beijing saw itself as the victim of Western sanctions after its forceful crackdown of the Tiananmen Square protests in 1989. In the 1990s and 2000s, the two countries upgraded relations, settled their disputed borders, and deepened their arms sales. Russia became the dominant supplier of advanced weapons to China.
When Xi Jinping assumed power in 2012, China was already Russia’s largest trading partner, and the two countries regularly engaged in military exercises. They advocated for each other in international forums; in parallel, they founded the SCO and BRICS grouping to deepen cooperation with neighbors and major developing countries.
When the two countries upgraded their relations again in 2019, the strategic drivers for much closer relations were already present. Russia’s annexation of Crimea in 2014 damaged its relations with the West and led to a first set of economic sanctions. Similarly, Washington identified Beijing as its most important long-term challenge, redirected military resources to the Pacific, and launched a trade war against Chinese companies. Moscow and Beijing were deeply suspicious of what they saw as Western support for the color revolutions in various countries and worried that they might be targets as well. Just as China refused to condemn Russian military actions in Chechnya, Georgia, Syria, and Ukraine, Russia fully backed Chinese positions on Taiwan, Hong Kong, Tibet, and Xinjiang. The Kremlin also demonstrated tacit support for Chinese territorial claims against its neighbors in the South China Sea and East China Sea.
Since launching its war in Ukraine, Russia has become China’s fastest-growing trading partner. Visiting Moscow in March, Xi declared that deepening ties to Russia was a “strategic choice” that China had made. Even the mutiny in June by Wagner Group leader Yevgeny Prigozhin that took his mercenary army almost to the gates of Moscow did not change China’s overall position toward Russia, though Beijing has embraced tactical adjustments to “de-risk” its dependency on Russian President Vladimir Putin.
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What’s next? Continued Sino-Russian convergence is the most likely course. But that is not set in stone–and progress can be accelerated, slowed, or reversed. Absent external shocks, Beijing and Moscow may not need to significantly upgrade their relationship from its current trajectory. Xi and Putin share similar views of a hostile West and recognize the strategic advantages of closer alignment. But they remain wary of each other, with neither wanting to be responsible for or subordinate to the other.
Major changes or shocks, however, could drive them closer at a faster pace. Should Russia suffer a devastating military setback in Ukraine that risks the collapse of Putin’s regime, China might reconsider the question of substantial military aid. If China, in turn, finds itself in a major Taiwan crisis or conflict against the United States, Beijing could lean more on Moscow. During a conflict over Taiwan, Russia could also engage in opportunistic aggression elsewhere that would tie China and Russia together in the eyes of the international community, even if Moscow’s actions were not coordinated with Beijing.
A change in the trajectory toward ever closer Chinese-Russian ties may also be possible, though it is far less likely. Some Chinese experts worry that Russia will always prioritize its own interests over any consideration of bilateral ties. If, for instance, former U.S. President Donald Trump wins another term, he could decrease U.S. support for Ukraine and offer Putin improved relations. This, in turn, could dim the Kremlin’s willingness to support China against the United States. It’s not clear if this worry is shared by top Chinese or Russian leaders, but mutual distrust and skepticism of the other remain in both countries.
This article appears in the Fall 2023 issue of Foreign Policy. Subscribe now to support our journalism.
Bonny Lin is a senior fellow for Asian security and the director of the China Power Project at the Center for Strategic and International Studies.
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