To what extent might China and Russia form partnerships in the Arctic region, and what factors might limit the development of their relationship? Although the United States has had Russia as a maritime neighbor in the Arctic since 1867, the growing presence of China in the region as a Russian partner has led to a rare situation in which two competitive — and potentially hostile — states are in very close proximity to North America. In this paper, the authors evaluate Russia's and China's activities in the Arctic and these activities' implications for nations with Arctic interests. The authors consider China's decades-long interest in the Arctic, its growing and possible future economic activities, and the existing and proposed collaborations that Beijing has sought with Arctic countries to realize its goals. The authors propose four scenarios for Sino-Russian relations in the Arctic that represent possible directions for evolution by 2035. Key factors that will shift this evolution in one direction or another include economic and broader geopolitical factors. The authors ultimately conclude that China's attention to the Arctic — in the context of its vastly broader economic security plans — rests on continued regional stability and that whether China engages with other Western Arctic countries may ultimately determine what the real limits are for a Sino-Russian friendship in the Arctic. Western policies that focus on differences between Russia and China may ultimately be more successful in shaping the Arctic's future than those that emphasize their similarities or friendly interactions thus far.

The United States has considerable interests in the Arctic and is one of just eight countries with territory in the region. It also has a responsibility to prepare and protect its armed forces that could be called upon to secure its Arctic interests as the region becomes an increasingly active security environment. Russia continues to maintain and upgrade large-scale, credible Arctic military capabilities. Moreover, China's growing economic and scientific activities in the region could enable it to expand its influence and capabilities there. Beyond strategic competition and growing concerns over the possibility of a North Atlantic Treaty Organization (NATO) — Russia clash, the armed forces of the United States—particularly the U.S. Coast Guard (USCG) — continually contend with safety, law enforcement, legal, other national security, and environmental issues in the region. The National Defense Authorization Act for Fiscal Year 2021 requires a report on the Arctic capabilities of the armed forces. This report summarizes the findings of this research and is intended to, at a minimum, address the congressional request and could also contribute related, independent findings about needs and issues.