Developments in East Asia in recent years hint at the possibility that communication between the Chinese Communist Party (CCP) and the People’s Liberation Army (PLA) is not all that it might be when it comes to coordinating military activities. Incidents such as the surprise stealth fighter test during former U.S. Secretary of Defense Robert Gates’ visit in 2011, or the 2007 anti-satellite test, are prime examples of the CCP’s leadership being seemingly unaware of what its military is doing. This suggests weakness in coordination between the center and the military, and helps explain numerous episodes where the civilian apparatus seemed oblivious to the PLA’s activities and confused about officers’ statements that made the PLA appear “rogue.”
In 2009, Andrew Scobell argued for the existence of a “civil-military gap” in China’s peaceful rise. Scobell uses this expression in two ways. First, it refers to a potentially serious difference between the attitudes and perspectives of civilian and military elites based on different life experiences and career paths; second, it refers to a possible “loose civilian control of the military.” The PLA detests political intrusion by the party into its own affairs and has subsequently carved out more autonomy for itself. Thus, the claim that in recent years, “civilian CCP leaders seem to have adopted a hands-off approach to the day-to-day affairs of the PLA” seems to plausibly describe the relationship between the military and the civilian leadership.
This could have far-reaching implications. In 2012, outgoing President Hu Jintao hinted that the chain of military command “might be more fragile than commonly understood,” although the true meaning of this statement remains abstruse. Certainly, confusion in the chain of command is not a new problem for China. Past examples include the 16th Party Congress, when Jiang retired from his post as general-secretary, but retained his seat as chairman of the CMC, while Hu became the new general-secretary. This led to ambiguity as to who was China’s commander in chief and ultimately in charge of the PLA, particularly for potentially explosive issues like Taiwan, where conflict control is complicated by the involvement of the United States.
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