1

13 February 2018
2

STATEMENT FOR THE RECORD

WORLDWIDE THREAT ASSESSMENT

of the 

US INTELLIGENCE COMMUNITY

February 13, 2018

INTRODUCTION

Chairman Burr, Vice Chairman Warner, Members of the Committee, thank you for the invitation to 

offer the United States Intelligence Community’s 2018 assessment of threats to US national security. 

My statement reflects the collective insights of the Intelligence Community’s extraordinary women 

and men, whom I am privileged and honored to lead. We in the Intelligence Community are 

committed every day to providing the nuanced, independent, and unvarnished intelligence that 

policymakers, warfighters, and domestic law enforcement personnel need to protect American lives 

and America’s interests anywhere in the world.

The order of the topics presented in this statement does not necessarily indicate the relative 

importance or magnitude of the threat in the view of the Intelligence Community.

Information available as of 8 February 2018 was used in the preparation of this assessment.
3

CONTENTS

INTRODUCTION...................................................................................................................2

CONTENTS ............................................................................................................................3

FOREWORD ..........................................................................................................................4

GLOBAL THREATS...............................................................................................................5

CYBER THREATS..................................................................................................................5

WEAPONS OF MASS DESTRUCTION AND PROLIFERATION.........................................7

TERRORISM ..........................................................................................................................9

COUNTERINTELLIGENCE AND FOREIGN DENIAL AND DECEPTION ......................11

EMERGING AND DISRUPTIVE TECHNOLOGY ..............................................................12

TECHNOLOGY ACQUISITIONS AND STRATEGIC ECONOMIC COMPETITION.........12

SPACE AND COUNTERSPACE ..........................................................................................13

TRANSNATIONAL ORGANIZED CRIME .........................................................................13

ECONOMICS AND ENERGY..............................................................................................15

HUMAN SECURITY ............................................................................................................16

REGIONAL THREATS.........................................................................................................18

EAST ASIA ...........................................................................................................................18

MIDDLE EAST AND NORTH AFRICA ..............................................................................19

SOUTH ASIA........................................................................................................................22

RUSSIA AND EURASIA ......................................................................................................23

EUROPE ...............................................................................................................................25

AFRICA ................................................................................................................................26

THE WESTERN HEMISPHERE...........................................................................................27
4

FOREWORD

Competition among countries will increase in the coming year as major powers and regional aggressors 

exploit complex global trends while adjusting to new priorities in US foreign policy. The risk of interstate 

conflict, including among great powers, is higher than at any time since the end of the Cold War. The most 

immediate threats of regional interstate conflict in the next year come from North Korea and from SaudiIranian use of proxies in their rivalry. At the same time, the threat of state and nonstate use of weapons of 

mass destruction will continue to grow.

 Adversaries and malign actors will use all instruments of national power—including information 

and cyber means—to shape societies and markets, international rules and institutions, and 

international hot spots to their advantage.

 China and Russia will seek spheres of influence and to check US appeal and influence in their 

regions. Meanwhile, US allies’ and partners’ uncertainty about the willingness and capability of 

the United States to maintain its international commitments may drive them to consider 

reorienting their policies, particularly regarding trade, away from Washington.

 Forces for geopolitical order and stability will continue to fray, as will the rules-based 

international order. New alignments and informal networks—outside traditional power blocs 

and national governments—will increasingly strain international cooperation.

Tension within many countries will rise, and the threat from Sunni violent extremist groups will evolve as 

they recoup after battlefield losses in the Middle East.

 Slow economic growth and technology-induced disruptions in job markets are fueling populism 

within advanced industrial countries and the very nationalism that contributes to tension among 

countries.

 Developing countries in Latin America and Sub-Saharan Africa face economic challenges, and 

many states struggle with reforms to tamp down corruption. Terrorists and criminal groups will 

continue to exploit weak state capacity in Africa, the Middle East, and Asia.

 Challenges from urbanization and migration will persist, while the effects of air pollution, 

inadequate water, and climate change on human health and livelihood will become more 

noticeable. Domestic policy responses to such issues will become more difficult—especially for 

democracies—as publics become less trusting of authoritative information sources.
5

GLOBAL THREATS

CYBER THREATS

The potential for surprise in the cyber realm will increase in the next year and beyond as billions more 

digital devices are connected—with relatively little built-in security—and both nation states and malign 

actors become more emboldened and better equipped in the use of increasingly widespread cyber toolkits. 

The risk is growing that some adversaries will conduct cyber attacks—such as data deletion or 

localized and temporary disruptions of critical infrastructure—against the United States in a crisis 

short of war. 

 In 2016 and 2017, state-sponsored cyber attacks against Ukraine and Saudi Arabia targeted 

multiple sectors across critical infrastructure, government, and commercial networks.

 Ransomware and malware attacks have spread globally, disrupting global shipping and 

production lines of US companies. The availability of criminal and commercial malware is 

creating opportunities for new actors to launch cyber operations.

 We assess that concerns about US retaliation and still developing adversary capabilities will 

mitigate the probability of attacks aimed at causing major disruptions of US critical 

infrastructure, but we remain concerned by the increasingly damaging effects of cyber operations 

and the apparent acceptance by adversaries of collateral damage.

Adversaries and Malign Actors Poised for Aggression

Russia, China, Iran, and North Korea will pose the greatest 

cyber threats to the United States during the next year. 

These states are using cyber operations as a low-cost tool 

of statecraft, and we assess that they will work to use 

cyber operations to achieve strategic objectives unless 

they face clear repercussions for their cyber operations. 

Nonstate actors will continue to use cyber operations for 

financial crime and to enable propaganda and 

messaging.

 The use of cyber attacks as a foreign policy tool 

outside of military conflict has been mostly limited 

to sporadic lower-level attacks. Russia, Iran, and 

North Korea, however, are testing more aggressive 

cyber attacks that pose growing threats to the United 

States and US partners.
6

Russia. We expect that Russia will conduct bolder and more disruptive cyber operations during the next 

year, most likely using new capabilities against Ukraine. The Russian Government is likely to build on 

the wide range of operations it is already conducting, including disruption of Ukrainian energydistribution networks, hack-and-leak influence operations, distributed denial-of-service attacks, and 

false flag operations. In the next year, Russian intelligence and security services will continue to probe 

US and allied critical infrastructures, as well as target the United States, NATO, and allies for insights 

into US policy.

China. China will continue to use cyber espionage and bolster cyber attack capabilities to support national 

security priorities. The IC and private-sector security experts continue to identify ongoing cyber 

activity from China, although at volumes significantly lower than before the bilateral US-China 

cyber commitments of September 2015. Most detected Chinese cyber operations against US private 

industry are focused on cleared defense contractors or IT and communications firms whose products 

and services support government and private sector networks worldwide. China since 2015 has been 

advancing its cyber attack capabilities by integrating its military cyber attack and espionage 

resources in the Strategic Support Force, which it established in 2015. 

Iran. We assess that Iran will continue working to penetrate US and Allied networks for espionage and to 

position itself for potential future cyber attacks, although its intelligence services primarily focus on Middle 

Eastern adversaries—especially Saudi Arabia and Israel. Tehran probably views cyberattacks as a 

versatile tool to respond to perceived provocations, despite Iran’s recent restraint from conducting 

cyber attacks on the United States or Western allies. Iran’s cyber attacks against Saudi Arabia in late 

2016 and early 2017 involved data deletion on dozens of networks across government and the 

private sector.

North Korea. We expect the heavily sanctioned North Korea to use cyber operations to raise funds and to 

gather intelligence or launch attacks on South Korea and the United States. Pyongyang probably has a 

number of techniques and tools it can use to achieve a range of offensive effects with little or no 

warning, including distributed denial of service attacks, data deletion, and deployment of 

ransomware.

 North Korean actors developed and launched the WannaCry ransomware in May 2017, judging 

from technical links to previously identified North Korean cyber tools, tradecraft, and 

operational infrastructure. We also assess that these actors conducted the cyber theft of $81 

million from the Bank of Bangladesh in 2016.

Terrorists and Criminals. Terrorist groups will continue to use the Internet to organize, recruit, spread 

propaganda, raise funds, collect intelligence, inspire action by followers, and coordinate operations. Given 

their current capabilities, cyber operations by terrorist groups mostly likely would result in personally 

identifiable information (PII) disclosures, website defacements, and denial-of-service attacks against 

poorly protected networks. Transnational criminals will continue to conduct for-profit cyberenabled crimes, such as theft and extortion against US networks. We expect the line between 

criminal and nation-state activity to become increasingly blurred as states view cyber criminal tools 

as a relatively inexpensive and deniable means to enable their operations.
7

WEAPONS OF MASS DESTRUCTION AND PROLIFERATION

State efforts to modernize, develop, or acquire weapons of mass destruction (WMD), their delivery systems, 

or their underlying technologies constitute a major threat to the security of the United States, its deployed 

troops, and its allies. Both state and nonstate actors have already demonstrated the use of chemical 

weapons in Iraq and Syria. Biological and chemical materials and technologies—almost always 

dual-use—move easily in the globalized economy, as do personnel with the scientific expertise to 

design and use them for legitimate and illegitimate purposes. Information about the latest 

discoveries in the life sciences also diffuses rapidly around the globe, widening the accessibility of 

knowledge and tools for beneficial purposes and for potentially nefarious applications.

Russia

Russia has developed a ground-launched cruise missile (GLCM) that the United States has declared 

is in violation of the Intermediate-Range Nuclear Forces (INF) Treaty. Despite Russia’s ongoing 

development of other Treaty-compliant missiles with intermediate ranges, Moscow probably 

believes that the new GLCM provides sufficient military advantages to make it worth risking the 

political repercussions of violating the INF Treaty. In 2013, a senior Russian administration official 

stated publicly that the world had changed since the INF Treaty was signed in 1987. Other Russian 

officials have made statements complaining that the Treaty prohibits Russia, but not some of its 

neighbors, from developing and possessing ground-launched missiles with ranges between 500 and 

5,500 kilometers.

China 

The Chinese People’s Liberation Army (PLA) continues to modernize its nuclear missile force by 

adding more survivable road-mobile systems and enhancing its silo-based systems. This new 

generation of missiles is intended to ensure the viability of China’s strategic deterrent by providing a 

second-strike capability. China also has tested a hypersonic glide vehicle. In addition, the PLA 

Navy continues to develop the JL-2 submarine-launched ballistic missile (SLBM) and might produce 

additional JIN-class nuclear-powered ballistic missile submarines. The JIN-class submarines—

armed with JL-2 SLBMs—give the PLA Navy its first long-range, sea-based nuclear capability. The 

Chinese have also publicized their intent to form a triad by developing a nuclear-capable nextgeneration bomber.

Iran and the Joint Comprehensive Plan of Action

Tehran's public statements suggest that it wants to preserve the Joint Comprehensive Plan of Action

because it views the JCPOA as a means to remove sanctions while preserving some nuclear 

capabilities. Iran recognizes that the US Administration has concerns about the deal but expects the 

other participants—China, the EU, France, Germany, Russia, and the United Kingdom—to honor 

their commitments. Iran’s implementation of the JCPOA has extended the amount of time Iran 

would need to produce enough fissile material for a nuclear weapon from a few months to about one 

year, provided Iran continues to adhere to the deal’s major provisions. The JCPOA has also 

enhanced the transparency of Iran’s nuclear activities, mainly by fostering improved access to 

Iranian nuclear facilities for the IAEA and its investigative authorities under the Additional Protocol 

to its Comprehensive Safeguards Agreement.
8

Iran’s ballistic missile programs give it the potential to hold targets at risk across the region, and 

Tehran already has the largest inventory of ballistic missiles in the Middle East. Tehran’s desire to 

deter the United States might drive it to field an ICBM. Progress on Iran’s space program, such as 

the launch of the Simorgh SLV in July 2017, could shorten a pathway to an ICBM because space 

launch vehicles use similar technologies.

North Korea

North Korea will be among the most volatile and confrontational WMD threats to the United States over 

the next year. North Korea’s history of exporting ballistic missile technology to several countries, 

including Iran and Syria, and its assistance during Syria’s construction of a nuclear reactor—

destroyed in 2007—illustrate its willingness to proliferate dangerous technologies.

In 2017 North Korea, for the second straight year, conducted a large number of ballistic missile tests,

including its first ICBM tests. Pyongyang is committed to developing a long-range, nuclear-armed 

missile that is capable of posing a direct threat to the United States. It also conducted its sixth and 

highest yield nuclear test to date.

We assess that North Korea has a longstanding BW capability and biotechnology infrastructure that 

could support a BW program. We also assess that North Korea has a CW program and probably 

could employ these agents by modifying conventional munitions or with unconventional, targeted 

methods.

Pakistan

Pakistan continues to produce nuclear weapons and develop new types of nuclear weapons, 

including short-range tactical weapons, sea-based cruise missiles, air-launched cruise missiles, and 

longer-range ballistic missiles. These new types of nuclear weapons will introduce new risks for 

escalation dynamics and security in the region.

Syria

We assess that the Syrian regime used the nerve agent sarin in an attack against the opposition in 

Khan Shaykhun on 4 April 2017, in what is probably the largest chemical weapons attack since 

August 2013. We continue to assess that Syria has not declared all the elements of its chemical 

weapons program to the Chemical Weapons Convention (CWC) and that it has the capability to 

conduct further attacks. Despite the creation of a specialized team and years of work by the 

Organization for the Prohibition of Chemical Weapons (OPCW) to address gaps and inconsistencies 

in Syria’s declaration, numerous issues remain unresolved. The OPCW-UN Joint Investigative 

Mechanism (JIM) has attributed the 4 April 2017 sarin attack and three chlorine attacks in 2014 and 

2015 to the Syrian regime. Even after the attack on Khan Shaykhun, we have continued to observe 

allegations that the regime has used chemicals against the opposition.

ISIS

We assess that ISIS is also using chemicals as a means of warfare. The OPCW-UN JIM concluded 

that ISIS used sulfur mustard in two attacks in 2015 and 2016, and we assess that it has used 

chemical weapons in numerous other attacks in Iraq and Syria.
9

TERRORISM

Sunni violent extremists—most notably ISIS and al-Qa‘ida—pose continuing terrorist threats to US 

interests and partners worldwide, while US-based homegrown violent extremists (HVEs) will remain 

the most prevalent Sunni violent extremist threat in the United States. Iran and its strategic partner 

Lebanese Hizballah also pose a persistent threat to the United States and its partners worldwide.

Sunni Violent Extremism

Sunni violent extremists are still intent on attacking the US homeland and US interests overseas, but their 

attacks will be most frequent in or near conflict zones or against enemies that are more easily accessible.

 Sunni violent extremist groups are geographically diverse; they are likely to exploit conflict 

zones in the Middle East, Africa, and Asia, where they can co-mingle terrorism and insurgency.

 ISIS and al-Qa‘ida and their respective networks will be persistent threats, as will groups not 

subordinate to them, such as the Haqqani Taliban Network.

ISIS

Over the next year, we expect that ISIS is likely to focus on regrouping in Iraq and Syria, enhancing its 

global presence, championing its cause, planning international attacks, and encouraging its members and 

sympathizers to attack in their home countries. ISIS’s claim of having a functioning caliphate that 

governs populations is all but thwarted.

 ISIS core has started—and probably will maintain—a robust insurgency in Iraq and Syria as part 

of a long-term strategy to ultimately enable the reemergence of its so-called caliphate. This 

activity will challenge local CT efforts against the group and threaten US interests in the region.
10

 ISIS almost certainly will continue to give priority to transnational terrorist attacks. Its 

leadership probably assesses that, if ISIS-linked attacks continue to dominate public discourse, 

the group’s narrative will be buoyed, it will be difficult for the counter-ISIS coalition to portray 

the group as defeated, and the coalition’s will to fight will ultimately weaken.

 Outside Iraq and Syria, ISIS’s goal of fostering interconnectivity and resiliency among its global 

branches and networks probably will result in local and, in some cases, regional attack plans.

Al-Qa‘ida

Al-Qa‘ida almost certainly will remain a major actor in global terrorism because of the combined staying 

power of its five affiliates. The primary threat to US and Western interests from al-Qa‘ida’s global 

network through 2018 will be in or near affiliates’ operating areas. Not all affiliates will have the intent 

and capability to pursue or inspire attacks in the US homeland or elsewhere in the West.

 Al-Qa‘ida’s affiliates probably will continue to dedicate most of their resources to local activity, 

including participating in ongoing conflicts in Afghanistan, Somalia, Syria, and Yemen, as well 

as attacking regional actors and populations in other parts of Africa, Asia, and the Middle East.

 Al-Qa‘ida leaders and affiliate media platforms almost certainly will call for followers to carry 

out attacks in the West, but their appeals probably will not create a spike in inspired attacks. 

The group’s messaging since at least 2010 has produced few such attacks.

Homegrown Violent Extremists

Homegrown violent extremists (HVEs) will remain the most prevalent and difficult-to-detect Sunni terrorist 

threat at home, despite a drop in the number of attacks in 2017. HVE attacks are likely to continue to 

occur with little or no warning because the perpetrators often strike soft targets and use simple tactics 

that do not require advanced skills or outside training.

 HVEs almost certainly will continue to be inspired by a variety of sources, including terrorist 

propaganda as well as in response to perceived grievances related to US Government actions.

Iran and Lebanese Hizballah

Iran remains the most prominent state sponsor of terrorism, providing financial aid, advanced 

weapons and tactics, and direction to militant and terrorist groups across the Middle East and 

cultivating a network of operatives across the globe as a contingency to enable potential terrorist 

attacks.

Lebanese Hizballah has demonstrated its intent to foment regional instability by deploying 

thousands of fighters to Syria and by providing weapons, tactics, and direction to militant and 

terrorist groups. Hizballah probably also emphasizes its capability to attack US, Israeli, and Saudi 

Arabian interests.
11

COUNTERINTELLIGENCE AND FOREIGN DENIAL AND DECEPTION

The United States will face a complex global foreign intelligence threat environment in 2018. We assess 

that the leading state intelligence threats to US interests will continue to be Russia and China, based on 

their services’ capabilities, intent, and broad operational scope. Other states in the Near East, South

Asia, East Asia, and Latin America will pose local and regional intelligence threats to US interests. 

For example, Iranian and Cuban intelligence and security services continue to view the United 

States as a primary threat.

Penetrating the US national decisionmaking apparatus and the Intelligence Community will remain 

primary objectives for numerous foreign intelligence entities. Additionally, the targeting of national 

security information and proprietary information from US companies and research institutions 

involved with defense, energy, finance, dual-use technology, and other areas will remain a persistent 

threat to US interests.

Nonstate entities, including international terrorists and transnational organized crime groups, are 

likely to continue to employ and improve their intelligence capabilities, including human, technical, 

and cyber means. As with state intelligence services, these nonstate entities recruit sources and 

perform physical and technical surveillance to facilitate their illicit activities and to avoid detection 

and capture.

Trusted insiders who disclose sensitive or classified US Government information without 

authorization will remain a significant threat in 2018 and beyond. The sophistication and 

availability of information technology that increases the scope and impact of unauthorized 

disclosures exacerbate this threat.

Russia and Influence Campaigns

Influence operations, especially through cyber means, will remain a significant threat to US interests as 

they are low-cost, relatively low-risk, and deniable ways to retaliate against adversaries, to shape foreign 

perceptions, and to influence populations. Russia probably will be the most capable and aggressive 

source of this threat in 2018, although many countries and some nonstate actors are exploring ways 

to use influence operations, both domestically and abroad.

We assess that the Russian intelligence services will continue their efforts to disseminate false information 

via Russian state-controlled media and covert online personas about US activities to encourage anti-US 

political views. Moscow seeks to create wedges that reduce trust and confidence in democratic 

processes, degrade democratization efforts, weaken US partnerships with European allies, 

undermine Western sanctions, encourage anti-US political views, and counter efforts to bring 

Ukraine and other former Soviet states into European institutions.

 Foreign elections are critical inflection points that offer opportunities for Russia to advance its 

interests both overtly and covertly. The 2018 US mid-term elections are a potential target for 

Russian influence operations.

 At a minimum, we expect Russia to continue using propaganda, social media, false-flag 

personas, sympathetic spokespeople, and other means of influence to try to exacerbate social and 

political fissures in the United States.
12

EMERGING AND DISRUPTIVE TECHNOLOGY

New technologies and novel applications of existing technologies have the potential to disrupt labor markets 

and alter health, energy, and transportation systems. We assess that technology developments—in the 

biotechnology and communications sectors, for example—are likely to outpace regulation, which 

could create international norms that are contrary to US interests and increase the likelihood of 

technology surprise. Emerging technology and new applications of existing technology will also 

allow our adversaries to more readily develop weapon systems that can strike farther, faster, and 

harder and challenge the United States in all warfare domains, including space.

 The widespread proliferation of artificial intelligence (AI)—the field of computer science 

encompassing systems that seek to imitate aspects of human cognition by learning and making 

decisions based on accumulated knowledge—is likely to prompt new national security concerns; 

existing machine learning technology, for example, could enable high degrees of automation in 

labor-intensive activities such as satellite imagery analysis and cyber defense. Increasingly 

capable AI tools, which are often enabled by large amounts of data, are also likely to present 

socioeconomic challenges, including impacts on employment and privacy.

 New biotechnologies are leading to improvements in agriculture, health care, and 

manufacturing. However, some applications of biotechnologies may lead to unintentional 

negative health effects, biological accidents, or deliberate misuse.

 The global shift to advanced information and communications technologies (ICT) will 

increasingly test US competitiveness because aspiring suppliers around the world will play a 

larger role in developing new technologies and products. These technologies include nextgeneration, or 5G, wireless technology; the internet of things; new financial technologies; and 

enabling AI and big data for predictive analysis. Differences in regulatory and policy approaches 

to ICT-related issues could impede growth and innovation globally and for US companies.

 Advanced materials could disrupt the economies of some commodities-dependent exporting 

countries while providing a competitive edge to developed and developing countries that create 

the capacity to produce and use the new materials. New materials, such as nanomaterials, are 

often developed faster than their health and environmental effects can be assessed. Advances in 

manufacturing, particularly the development of 3D printing, almost certainly will become even 

more accessible to a variety of state and nonstate actors and be used in ways contrary to our 

interests.

TECHNOLOGY ACQUISITIONS AND STRATEGIC ECONOMIC COMPETITION

Persistent trade imbalances, trade barriers, and a lack of market-friendly policies in some countries 

probably will continue to challenge US economic security. Some countries almost certainly will continue to 

acquire US intellectual property and propriety information illicitly to advance their own economic and

national security objectives.

 China, for example, has acquired proprietary technology and early-stage ideas through cyberenabled means. At the same time, some actors use largely legitimate, legal transfers and 
13

relationships to gain access to research fields, experts, and key enabling industrial processes that 

could, over time, erode America’s long-term competitive advantages.

SPACE AND COUNTERSPACE

Continued global space industry expansion will further extend space-enabled capabilities and space 

situational awareness to nation-state, nonstate, and commercial space actors in the coming years, 

enabled by the increased availability of technology, private-sector investment, and growing 

international partnerships for shared production and operation. All actors will increasingly have 

access to space-derived information services, such as imagery, weather, communications, and 

positioning, navigation, and timing for intelligence, military, scientific, or business purposes. 

Foreign countries—particularly China and Russia—will continue to expand their space-based 

reconnaissance, communications, and navigation systems in terms of the numbers of satellites, the 

breadth of their capability, and the applications for use.

Both Russia and China continue to pursue antisatellite (ASAT) weapons as a means to reduce US 

and allied military effectiveness. Russia and China aim to have nondestructive and destructive 

counterspace weapons available for use during a potential future conflict. We assess that, if a future 

conflict were to occur involving Russia or China, either country would justify attacks against US and 

allied satellites as necessary to offset any perceived US military advantage derived from military, 

civil, or commercial space systems. Military reforms in both countries in the past few years indicate 

an increased focus on establishing operational forces designed to integrate attacks against space 

systems and services with military operations in other domains.

Russian and Chinese destructive ASAT weapons probably will reach initial operational capability in 

the next few years. China’s PLA has formed military units and begun initial operational training 

with counterspace capabilities that it has been developing, such as ground-launched ASAT missiles. 

Russia probably has a similar class of system in development. Both countries are also advancing 

directed-energy weapons technologies for the purpose of fielding ASAT weapons that could blind or 

damage sensitive space-based optical sensors, such as those used for remote sensing or missile 

defense. 

Of particular concern, Russia and China continue to launch “experimental” satellites that conduct 

sophisticated on-orbit activities, at least some of which are intended to advance counterspace 

capabilities. Some technologies with peaceful applications—such as satellite inspection, refueling, 

and repair—can also be used against adversary spacecraft.

Russia and China continue to publicly and diplomatically promote international agreements on the 

nonweaponization of space and “no first placement” of weapons in space. However, many classes 

of weapons would not be addressed by such proposals, allowing them to continue their pursuit of 

space warfare capabilities while publicly maintaining that space must be a peaceful domain.

TRANSNATIONAL ORGANIZED CRIME

Transnational organized criminal groups and networks will pose serious and growing threats to the security 

and health of US citizens, as well as to global human rights, ecological integrity, government revenues, and 

efforts to deal with adversaries and terrorists. In the most severe cases abroad, criminal enterprises will 
14

contribute to increased social violence, erode governments’ authorities, undermine the integrity of 

international financial systems, and harm critical infrastructure.

Drug Trafficking

Transnational organized criminal groups supply the 

dominant share of illicit drugs consumed in the United 

States, fueling high mortality rates among US citizens.

 Americans in 2016 died in record numbers from 

drug overdoses, 21 percent more than in 2015.

 Worldwide production of cocaine, heroin, and 

methamphetamine is at record levels. US 

mortality from potent synthetic opioids doubled in 

2016, and synthetic opioids have become a key 

cause of US drug deaths.

 Mexican criminal groups will continue to supply 

much of the heroin, methamphetamine, cocaine, 

and marijuana that cross the US-Mexico border, 

while China-based suppliers ship fentanyls and 

fentanyl precursors to Mexico-, Canada-, and USbased distributors or sell directly to consumers via 

the Internet.

Broader Threats From Transnational Crime

Transnational organized criminal groups, in addition to engaging in violence, will continue to traffic in 

human beings, deplete natural resources, and siphon money from governments and the global economy.

 Human trafficking will continue in virtually every country. International organizations estimate 

that about 25 million people are victims.

 The FBI assesses that US losses from cybercrime in 2016 exceeded $1.3 billion, and some 

industry experts predict such losses could cost the global economy $6 trillion by 2021.

 Criminal wildlife poaching, illegal fishing, illicit mining, and drug-crop production will continue 

to threaten economies, biodiversity, food supply security, and human health. For example, 

academic studies show that illicit mining alone adds some 650 to 1,000 tons of toxic mercury to 

the ecosystem each year.

 Transnational organized criminal groups probably will generate more revenue from illicit 

activity in the coming year, which the UN last estimated at $1.6-$2.2 trillion for 2014.
15

ECONOMICS AND ENERGY

Global growth in 2018—projected by the IMF to 

rise to 3.9 percent—is likely to become more broadly 

based, but growth remains weak in many countries, 

and inflation is below target in most advanced 

economies. The relatively favorable outlook for 

real economic growth suggests little near-term 

risk of unfavorable deficit-debt dynamics among 

the advanced economies. Supportive financial 

conditions and improving business sentiment 

will help to drive economic activity in advanced 

countries. China’s growth may decelerate as the 

property sector cools and if Beijing accelerates 

economic reforms. India’s economy is expected 

to rebound after headwinds from taxation 

changes and demonetization, and the continuing 

upswing in emerging and developing economies 

could be tempered by capital outflows from a 

stronger dollar and monetary policy 

normalization in the United States and Europe.

Oil-exporting countries continue to suffer from the 

late-2014 oil price drop, and their economic woes are likely to continue, with broader negative implications. 

Subdued economic growth, combined with sharp increases in North American oil and gas 

production, probably will continue putting downward pressure on global energy prices, harming oilexporting economies. The US Energy Information Administration forecasts that 2018 West Texas 

Intermediate and Brent prices will average $58 and $62 per barrel, respectively, far below the average 

annual prices of $98 and $109 in 2013.

 Low oil prices and production declines—along with poor economic policies—have pushed 

Venezuela and the state-owned oil company, Petroleos de Venezuela, to miss debt payments, 

putting them in selective default.

 Saudi Arabia and other Persian Gulf oil exporters have experienced sharp increases in budget 

deficits, forcing governments to issue debt and enact politically unpopular fiscal reforms, such as 

cuts to subsidies, social programs, and government jobs.

 In Africa, declining oil revenue, mismanagement, and inadequate policy responses to oil price 

shocks have contributed to Angolan and Nigerian fiscal problems, currency strains, and 

deteriorating foreign exchange reserves.

 OPEC member countries and select non-OPEC producers, including Russia, in early 2017 

committed to cut oil production in order to lift prices, with compliance likely to be offset 

somewhat as Libya or Nigeria—both are exempt from the deal—are able to resume production.
16

HUMAN SECURITY

Governance shortfalls, violent conflict, environmental stresses, and increased potential for a global health 

crisis will create significant risks to human security, including high levels of human displacement and 

migration flows.

Governance and Political Turbulence

Domestic and foreign challenges to democracy and institutional capacity will test governance quality 

globally in 2018, especially as competitors manipulate social media to shape opinion. Freedom 

House reported the 11th consecutive year of decline in “global freedom” in 2017, and nearly onequarter of the countries registering declines were in Europe.

 While the number of democracies has remained steady for the past decade, some scholars 

suggest the quality of democracy has declined.

 We note that more governments are using propaganda and misinformation in social media to 

influence foreign and domestic audiences.

 The number and sophistication of government efforts to shape domestic views of politics have

increased dramatically in the past 10 years. In 2016, Freedom House identified 30 countries, 

including the Philippines, Turkey, and Venezuela, whose governments used social media to 

spread government views, to drive agendas, and to counter criticism of the government online.

Poor governance, weak national political institutions, economic inequality, and the rise of violent nonstate 

actors all undermine states’ abilities to project authority and elevate the risk of violent—even regimethreatening—instability and mass atrocities.

Environment and Climate Change 

The impacts of the long-term trends toward a warming climate, more air pollution, biodiversity loss, and 

water scarcity are likely to fuel economic and social discontent—and possibly upheaval—through 2018.

 The past 115 years have been the warmest period in the history of modern civilization, and the 

past few years have been the warmest years on record. Extreme weather events in a warmer 

world have the potential for greater impacts and can compound with other drivers to raise the 

risk of humanitarian disasters, conflict, water and food shortages, population migration, labor 

shortfalls, price shocks, and power outages. Research has not identified indicators of tipping 

points in climate-linked earth systems, suggesting a possibility of abrupt climate change.

 Worsening air pollution from forest burning, agricultural waste incineration, urbanization, and 

rapid industrialization—with increasing public awareness—might drive protests against 

authorities, such as those recently in China, India, and Iran.

 Accelerating biodiversity and species loss—driven by pollution, warming, unsustainable fishing, 

and acidifying oceans—will jeopardize vital ecosystems that support critical human systems. 

Recent estimates suggest that the current extinction rate is 100 to 1,000 times the natural 

extinction rate.
17

 Water scarcity, compounded by gaps in cooperative management agreements for nearly half of 

the world’s international river basins, and new unilateral dam development are likely to heighten 

tension between countries.

Human Displacement

Global displacement almost certainly will remain near record highs during the next year, raising the risk of 

disease outbreaks, recruitment by armed groups, political upheaval, and reduced economic productivity. 

Conflicts will keep many of the world’s refugees and internally displaced persons from returning 

home.

Health 

The increase in frequency and diversity of reported disease outbreaks—such as dengue and Zika—probably

will continue through 2018, including the potential for a severe global health emergency that could lead to 

major economic and societal disruptions, strain governmental and international resources, and increase 

calls on the United States for support. A novel strain of a virulent microbe that is easily transmissible 

between humans continues to be a major threat, with pathogens such as H5N1 and H7N9 influenza and 

Middle East Respiratory Syndrome Coronavirus having pandemic potential if they were to acquire efficient 

human-to-human transmissibility.

 The frequency and diversity of disease outbreaks have increased at a steady rate since 1980, 

probably fueled by population growth, travel and trade patterns, and rapid urbanization. 

Ongoing global epidemics of HIV/AIDS, malaria, and tuberculosis continue to kill millions of 

people annually.

 Increasing antimicrobial resistance, the ability of pathogens—including viruses, fungi, and 

bacteria—to resist drug treatment, is likely to outpace the development of new antimicrobial 

drugs, leading to infections that are no longer treatable.

 The areas affected by vector-borne diseases, including dengue, are likely to expand, especially as 

changes in climatological patterns increase the reach of the mosquito.

 The World Bank has estimated that a severe global influenza pandemic could cost the equivalent 

of 4.8 percent of global GDP—more than $3 trillion—and cause more than 100 million deaths. 
18

REGIONAL THREATS

EAST ASIA

China

China will continue to pursue an active foreign policy—especially in the Asia Pacific region—highlighted 

by a firm stance on its sovereignty claims in the East China Sea (ECS) and South China Sea (SCS), its 

relations with Taiwan, and its pursuit of economic engagement across the region. Regional tension will 

persist due to North Korea’s nuclear and missile programs and simmering tension over territorial 

and maritime disputes in the ECS and SCS. China will also pursue efforts aimed at fulfilling its 

ambitious Belt and Road Initiative to expand China’s economic reach and political influence across 

Eurasia, Africa, and the Pacific through infrastructure projects.

North Korea

North Korea’s weapons of mass destruction program, public threats, defiance of the international 

community, confrontational military posturing, cyber activities, and potential for internal instability 

pose a complex and increasing threat to US national security and interests.

In the wake of accelerated missile testing since 2016, North Korea is likely to press ahead with more tests in 

2018, and its Foreign Minister said that Kim may be considering conducting an atmospheric nuclear test 

over the Pacific Ocean. Pyongyang’s commitment to possessing nuclear weapons and fielding capable 

long-range missiles, all while repeatedly stating that nuclear weapons are the basis for its survival, 

suggests that the regime does not intend to negotiate them away.

Ongoing, modest improvements to North Korea’s conventional capabilities continue to pose a 

serious and growing threat to South Korea and Japan. Despite the North Korean military’s many 

internal challenges and shortcomings, Kim Jong Un continues to expand the regime’s conventional 

strike options with more realistic training, artillery upgrades, and close-range ballistic missiles that 

improve North Korea's ability to strike regional US and allied targets with little warning.

Southeast Asia

Democracy and human rights in many Southeast Asian countries will remain fragile in 2018 as autocratic 

tendencies deepen in some regimes and rampant corruption and cronyism undermine democratic values. 

Countries in the region will struggle to preserve foreign policy autonomy in the face of Chinese 

economic and diplomatic coercion.

 Cambodian leader Hun Sen will repress democratic institutions and civil society, manipulate 

government and judicial institutions, and use patronage and political violence to guarantee his 

rule beyond the 2018 national election. Having alienated Western partners, Hun Sen will rely 

on Beijing’s political and financial support, drawing Cambodia closer to China as a result.

 The crisis resulting from the exodus of more than 600,000 Rohingyas from Burma to Bangladesh 

will threaten Burma’s fledgling democracy, increase the risk of violent extremism, and provide 

openings for Beijing to expand its influence.
19

 In the Philippines, President Duterte will continue to wage his signature campaign against drugs, 

corruption, and crime. Duterte has suggested he could suspend the Constitution, declare a 

“revolutionary government,” and impose nationwide martial law. His declaration of martial 

law in Mindanao, responding to the ISIS-inspired siege of Marawi City, has been extended 

through the end of 2018.

 Thailand’s leaders have pledged to hold elections in late 2018, but the new Constitution will 

institutionalize the military’s influence.

MIDDLE EAST AND NORTH AFRICA

Iran

Iran will seek to expand its influence in Iraq, Syria, and Yemen, where it sees conflicts generally trending 

in Tehran’s favor, and it will exploit the fight against ISIS to solidify partnerships and translate its 

battlefield gains into political, security, and economic agreements.

 Iran’s support for the Popular Mobilization Committee (PMC) and Shia militants remains the 

primary threat to US personnel in Iraq. We assess that this threat will increase as the threat from 

ISIS recedes, especially given calls from some Iranian-backed groups for the United States to 

withdraw and growing tension between Iran and the United States.

 In Syria, Iran is working to consolidate its influence while trying to prevent US forces from 

gaining a foothold. Iranian-backed forces are seizing routes and border crossings to secure the 

Iraq-Syria border and deploying proregime elements and Iraqi allies to the area. Iran’s 

retaliatory missile strikes on ISIS targets in Syria following ISIS attacks in Tehran in June were 

probably intended in part to send a message to the United States and its allies about Iran’s 

improving military capabilities. Iran is pursuing permanent military bases in Syria and probably 

wants to maintain a network of Shia foreign fighters in Syria to counter future threats to Iran. 

Iran also seeks economic deals with Damascus, including deals on telecommunications, mining, 

and electric power repairs.

 In Yemen, Iran’s support to the Huthis further escalates the conflict and poses a serious threat to 

US partners and interests in the region. Iran continues to provide support that enables Huthi 

attacks against shipping near the Bab al Mandeb Strait and land-based targets deep inside Saudi 

Arabia and the UAE, such as the 4 November and 19 December ballistic missile attacks on 

Riyadh and an attempted 3 December cruise missile attack on an unfinished nuclear reactor in 

Abu Dhabi.

Iran will develop military capabilities that threaten US forces and US allies in the region, and its unsafe 

and unprofessional interactions will pose a risk to US Navy operations in the Persian Gulf.

Iran continues to develop and improve a range of new military capabilities to target US and allied 

military assets in the region, including armed UAVs, ballistic missiles, advanced naval mines,

unmanned explosive boats, submarines and advanced torpedoes, and antishipand land-attack cruise 

missiles. Iran has the largest ballistic missile force in the Middle East and can strike targets up to 

2,000 kilometers from Iran’s borders. Russia’s delivery of the SA-20c SAM system in 2016 has 

provided Iran with its most advanced long-range air defense system.
20

 Islamic Revolutionary Guard Corps (IRGC) Navy forces operating aggressively in the Persian 

Gulf and Strait of Hormuz pose a risk to the US Navy. Most IRGC interactions with US ships 

are professional, but as of mid-October, the Navy had recorded 14 instances of what it describes 

as “unsafe and/or unprofessional” interactions with Iranian forces during 2017, the most recent 

interaction occurring last August, when an unarmed Iranian drone flew close to the aircraft 

carrier USS Nimitz as fighter jets landed at night. The Navy recorded 36 such incidents in 2016 

and 22 in 2015. Most involved the IRGC Navy. We assess that these interactions, although less 

frequent, will continue and that they are probably intended to project an image of strength and, 

possibly, to gauge US responses.

Iranian centrist and hardline politicians increasingly will clash as they attempt to implement competing 

visions for Iran’s future. This contest will be a key driver in determining whether Iran changes its 

behavior in ways favorable to US interests.

 Centrists led by President Hasan Ruhani will continue to advocate greater social progress, 

privatization, and more global integration, while hardliners will view this agenda as a threat to 

their political and economic interests and to Iran’s revolutionary and Islamic character.

 Supreme Leader Ali Khamenei’s views are closer to those of the hardliners, but he has supported 

some of Ruhani’s efforts to engage Western countries and to promote economic growth. The 

Iranian economy’s prospects—still driven heavily by petroleum revenue—will depend on 

reforms to attract investment, strengthen privatization, and grow nonoil industries, which 

Ruhani will continue pursuing, much to the dismay of hardliners. National protests over 

economic grievances in Iran earlier this year have drawn more attention to the need for major 

reforms, but Ruhani and his critics are likely to use the protests to advance their political 

agendas.

 Khamenei has experienced health problems in the past few years, and, in an effort to preserve his 

legacy, he probably opposes moving Iran toward greater political and economic openness. As 

their relationship has deteriorated since the presidential election last June, Ruhani has tried to 

mend relations with Khamenei as well as his allies, but, in doing so, he risks failing to make 

progress on reforms in the near-term.

Syria

The conflict has decisively shifted in the Syrian regime’s favor, enabling Russia and Iran to further 

entrench themselves inside the country. Syria is likely to experience episodic conflict through 2018, even as 

Damascus recaptures most of the urban terrain and the overall level of violence decreases.

 The Syrian opposition’s seven-year insurgency is probably no longer capable of overthrowing President 

Bashar al-Asad or overcoming a growing military disadvantage. Rebels probably retain the 

resources to sustain the conflict for at least the next year.

 ISIS is likely on a downward trajectory in Syria; yet, despite territorial losses, it probably 

possesses sufficient resources, and a clandestine network in Syria, to sustain insurgency 

operations through 2018.
21

 Moscow probably cannot force President Asad to agree to a political settlement that he believes 

significantly weakens him, unless Moscow is willing to remove Asad by force. While Asad may 

engage in peace talks, he is unlikely to negotiate himself from power or offer meaningful 

concessions to the opposition.

 Russia and Iran are planning for a long-term presence, securing military basing rights and 

contracts for reconstruction and oil and gas exploitation. Iran is also seeking to establish a land 

corridor from Iran through Syria to Lebanon. The Kurdish People’s Protection Unit—the 

Syrian militia of the Kurdistan Workers’ Party (PKK)—probably will seek some form of 

autonomy but will face resistance from Russia, Iran, and Turkey.

 As of October 2017, there were more than 5 million Syrian refugees in neighboring countries, 

and an estimated 6.3 million internally displaced. Reconstruction could cost at least $100 billion 

and take at least 10 years to complete. Asad’s battered economy will likely continue to require 

significant subsidies from Iran and Russia to meet basic expenses.

Iraq

Iraq is likely to face a lengthy period of political turmoil and conflict as it struggles to rebuild, reconstitute 

the Iraqi state, maintain pressure on ISIS, and rein in the Iranian-backed Shia militias that pose an 

enduring threat to US personnel.

 The Iraqi Government, which has accrued $120 billion in debt, requires substantial external 

assistance to cover hundreds of millions of dollars in humanitarian-aid shortfalls and a World 

Bank estimated $88.2 billion to restore heavily damaged infrastructure, industry, and service 

sectors in areas retaken from ISIS.

 Prime Minister Haydar al-Abadi’s forceful reassertion of Baghdad’s authority after the Kurdistan 

Regional Government’s (KRG) independence referendum in September illustrates the divisions 

among Iraqi leaders over the future of the state. The move to curb Kurdish autonomy was 

popular among many Arab Shia and Sunnis and may prompt Iraqi leaders to be 

uncompromising in political reconciliation discussions in order to consolidate votes in the runup to elections planned for next spring. 

 ISIS will remain a terrorist and insurgent threat, and the group will seek to exploit Sunni 

discontent to conduct attacks and try to regain Iraqi territory. Baghdad will struggle to reorient 

the Iraqi Security Forces (ISF) from conventional warfare to counterinsurgency and 

counterterrorism against ISIS while consolidating state control of territory and integrating the 

Iranian-backed and Shia-dominated Popular Mobilization Committee (PMC).

 There is an increasing risk that some Shia militants will seek to attack US targets in Iraq because 

they believe that the US security presence is no longer needed, want to reassert Iraqi sovereignty, 

and support Iran’s goal of reducing US influence in Iraq.

Baghdad will have to contend with longstanding and war-hardened ethnosectarian divisions 

between Shia, Sunnis, and Kurds that were kept in check by the threat from ISIS. Despite ISIS’s 

loss of territory, the social and political challenges that gave rise to the group remain and threaten 

the cohesion of the Iraqi state.
22

Yemen

The war in Yemen is likely to continue for the foreseeable future because the Iranian-backed Huthis 

and the Saudi-led coalition remain far apart on terms for ending the conflict. The death of former 

Yemeni President Ali Abdallah Salih is only likely to further complicate the conflict as the Huthis 

and others scramble to win over those who previously backed Salih. We assess that the Huthis will 

continue to pursue their goals militarily and that, as a result, US allies and interests on the Arabian 

Peninsula will remain at risk of Huthi missile attacks until the conflict is resolved.

 Continued fighting almost certainly will worsen the vast humanitarian crisis, which has left more 

than 70 percent of the population—or about 20 million people—in need of assistance and 

aggravated a cholera outbreak that has reached nearly 1 million confirmed cases. Relief 

operations are hindered by security and bureaucratic constraints established by both the HuthiSalih alliance and the Saudi-led coalition and by international funding shortages.

SOUTH ASIA

Afghanistan

The overall situation in Afghanistan probably will deteriorate 

modestly this year in the face of persistent political instability, 

sustained attacks by the Taliban-led insurgency, unsteady 

Afghan National Security Forces (ANSF) performance, and 

chronic financial shortfalls. The National Unity Government 

probably will struggle to hold long-delayed parliamentary 

elections, currently scheduled for July 2018, and to prepare 

for a presidential election in 2019. The ANSF probably will 

maintain control of most major population centers with 

coalition force support, but the intensity and geographic 

scope of Taliban activities will put those centers under 

continued strain. Afghanistan’s economic growth will 

stagnate at around 2.5 percent per year, and Kabul will 

remain reliant on international donors for the great majority 

of its funding well beyond 2018.

Pakistan

Pakistan will continue to threaten US interests by deploying new 

nuclear weapons capabilities, maintaining its ties to militants, 

restricting counterterrorism cooperation, and drawing closer to 

China. Militant groups supported by Islamabad will continue to take advantage of their safe haven 

in Pakistan to plan and conduct attacks in India and Afghanistan, including against US interests. 

Pakistan’s perception of its eroding position relative to India, reinforced by endemic economic 

weakness and domestic security issues, almost certainly will exacerbate long-held fears of isolation 

and drive Islamabad’s pursuit of actions that run counter to US goals for the region.
23

India-Pakistan Tension

Relations between India and Pakistan are likely to remain tense, with continued violence on the Line of 

Control and the risk of escalation if there is another high-profile terrorist attack in India or an uptick in 

violence on the Line of Control.

India-China Tension

We expect relations between India and China to remain tense and possibly to deteriorate further, despite 

the negotiated settlement to their three-month border standoff in August, elevating the risk of unintentional 

escalation.

Bangladesh-Burma Rohingya Crisis

The turmoil resulting from more than 600,000 Rohingyas fleeing from Burma to Bangladesh increases 

regional tension and may expand opportunities for terrorist recruitment in South and Southeast Asia. 

Further operations by Burmese security forces against Rohingya insurgents or sustained violence by 

ethnic Rakhine militias probably would make it difficult to repatriate Burmese from Bangladesh.

RUSSIA AND EURASIA

Russia

In his probable next term in office, President Vladimir 

Putin will rely on assertive and opportunistic foreign 

policies to shape outcomes beyond Russia’s borders. He 

will also resort to more authoritarian tactics to maintain 

control amid challenges to his rule.

Moscow will seek cooperation with the United States 

in areas that advance its interests. Simultaneously, 

Moscow will employ a variety of aggressive tactics to 

bolster its standing as a great power, secure a “sphere 

of influence” in the post-Soviet space, weaken the 

United States, and undermine Euro-Atlantic unity. 

The highly personalized nature of the Russian 

political system will enable Putin to act decisively to 

defend Russian interests or to pursue opportunities 

he views as enhancing Russian prestige and power 

abroad.

Russia will compete with the United States most 

aggressively in Europe and Eurasia, while applying 

less intense pressure in “outer areas” and cultivating 

partnerships with US rivals and adversaries—as well 

as with traditional US partners—to constrain US 

power and accelerate a shift toward a “multipolar” 

world. Moscow will use a range of relatively lowcost tools to advance its foreign policy objectives, including influence campaigns, economic 

coercion, cyber operations, multilateral forums, and measured military force. Russia’s slow 
24

economic growth is unlikely to constrain Russian foreign policy or by itself trigger concessions from 

Moscow in Ukraine, Syria, or elsewhere in the next year.

President Putin is likely to increase his use of repression and intimidation to contend with domestic 

discontent over corruption, poor social services, and a sluggish economy with structural deficiencies. 

He will continue to manipulate the media, distribute perks to maintain elite support, and elevate 

younger officials to convey an image of renewal. He is also likely to expand the government’s legal 

basis for repression and to enhance his capacity to intimidate and monitor political threats, perhaps 

using the threat of “extremism” or the 2018 World Cup to justify his actions.

In 2018, Russia will continue to modernize, develop, and field a wide range of advanced nuclear,

conventional, and asymmetric capabilities to balance its perception of a strategic military inferiority 

vis-a-vis the United States.

Ukraine

Ukraine remains at risk of domestic turmoil, which Russia could exploit to undermine Kyiv’s pro-West 

orientation. These factors will threaten Ukraine’s nascent economic recovery and potentially lead to 

changes in its foreign policy that further inflame tension between Russia and the West.

 Popular frustrations with the pace of reforms, depressed standards of living, perceptions of 

worsening corruption, and political polarization ahead of scheduled presidential and legislative 

elections in 2019 could prompt early elections.

 Opposition leaders will seek to capitalize on popular discontent to weaken President Petro 

Poroshenko and the ruling coalition ahead of elections in 2019.

The conflict in eastern Ukraine is likely to remain stalemated and marked by fluctuating levels of violence. 

A major offensive by either side is unlikely in 2018, although each side’s calculus could change if it sees the 

other as seriously challenging the status quo. Russia will continue its military, political, and economic 

destabilization campaign against Ukraine to stymie and, where possible, reverse Kyiv’s efforts to 

integrate with the EU and strengthen ties to NATO. Kyiv will strongly resist concessions to 

Moscow but almost certainly will not regain control of Russian-controlled areas of eastern Ukraine 

in 2018. Russia will modulate levels of violence to pressure Kyiv and shape negotiations in 

Moscow’s favor.

 Russia will work to erode Western unity on sanctions and support for Kyiv, but the Kremlin is 

coping with sanctions at existing levels.

Belarus, the Caucasus, Central Asia, Moldova

The Kremlin will seek to maintain and, where possible, expand its influence throughout the former Soviet 

countries that it asserts are in its self-described sphere of influence.

Russia views Belarus as a critical buffer between itself and NATO and will seek to spoil any 

potential warming between Minsk and the West. Belarus President Aleksandr Lukashenko will 

continue close security cooperation with Moscow but will continue to aim for normalized relations 

with the West as a check on Russia’s influence.
25

Russia’s continued occupation of 20 percent of Georgia’s territory and efforts to undermine its 

Western integration will remain the primary sources of Tbilisi’s insecurity. The ruling Georgian 

Dream party is likely to seek to stymie the opposition and reduce institutional constraints on its 

power.

Tension over the disputed region of Nagorno-Karabakh could devolve into a large-scale military 

conflict between Armenia and Azerbaijan, which could draw in Russia to support its regional ally. 

Both sides’ reluctance to compromise, mounting domestic pressures, Azerbaijan’s steady military 

modernization, and Armenia’s acquisition of new Russian equipment sustain the risk of large-scale 

hostilities in 2018.

Russia will pressure Central Asia’s leaders to reduce engagement with Washington and support 

Russian-led economic and security initiatives, while concerns about ISIS in Afghanistan will push 

Moscow to strengthen its security posture in the region. Poor governance and weak economies raise 

the risk of radicalization—especially among the many Central Asians who travel to Russia or other 

countries for work—presenting a threat to Central Asia, Russia, and Western societies. China will 

probably continue to expand outreach to Central Asia—while deferring to Russia on security and 

political matters—because of concern that regional instability could undermine China’s economic 

interests and create a permissive environment for extremists, which, in Beijing’s view, could enable 

Uighur militant attacks in China.

Moldova’s ostensibly pro-European ruling coalition—unless it is defeated in elections planned for 

November—probably will seek to curb Russian influence and maintain a veneer of European reform 

while avoiding changes that would damage the coalition’s grip on power. The current Moldovan 

Government probably will move forward on implementing Moldova’s EU Association Agreement 

against the will of openly pro-Russian and Russian-backed President Igor Dodon. Settlement talks 

over the breakaway region of Transnistria will continue, but progress likely will be limited to small 

issues.

EUROPE

The European Union and European national governments will struggle to develop common approaches to 

counter a variety of security challenges, including instability on their periphery, irregular migration to their 

region, heightened terrorist threats, and Russian influence campaigns, undercutting Western cohesion.

 These concerns are spurring many countries to increase defense spending and enhance 

capabilities.

 European governments will need to strengthen their counterterrorism regimes to deal with a 

diverse threat, including ISIS aspirants and returning foreign fighters.

Turkey’s counterterrorism cooperation with the United States against ISIS is likely to continue, but 

thwarting Kurdish regional ambitions will be a foreign policy priority. President Recep Tayyip 

Erdogan is likely to employ polarizing rhetoric, straining bilateral relations and cooperation on 

shared regional goals. 
26

AFRICA

Nigeria—the continent's largest economy—will face a security threat from Boko Haram and ISIS West 

Africa (ISIS-WA) while battling internal challenges from criminal, militant, and secessionist groups. 

ISIS-WA and Boko Haram are regional menaces, conducting cross-border attacks in Nigeria, 

Cameroon, Chad, and Niger and posing a threat to Western interests. Meanwhile, militant and 

secessionist groups in in the southern and central areas of Nigeria are capitalizing on longstanding 

social and economic grievances as the country nears the 2019 presidential election.

Politically fragile governments in Africa’s Sahel region will remain vulnerable to terror attacks in 2018, 

despite efforts to coordinate their counterterror operations. ISIS and al-Qa‘ida–allied groups, along with 

other violent extremists, will attempt to target Western and local government interests in the region, 

and a stalled peace process is likely to undercut the presidential election in Mali.

The Ethiopian and Kenyan Governments are likely to face opposition from publics agitating for redress of 

political grievances. Somalia’s recently elected government probably will struggle to project its authority 

and implement security reforms amid the drawdown of African Union forces in 2018, while al-Shabaab—

the most potent terrorist threat to US interests in East Africa—probably will increase attacks.

Clashes between the South Sudanese Government and armed opposition groups will continue, raising the 

risk of additional mass atrocities as both sides use ethnic militias and hate speech and the government 

continues its crackdown on ethnic minorities. The South Sudanese are the world’s fastest growing 

refugee population, and the significant humanitarian challenges stemming from the conflict, 

including severe food insecurity, will strain the resources of neighboring countries hosting refugees.

Sudan is likely to continue some aspects of its constructive engagement with the United States following the 

suspension of sanctions because it has given priority to shedding its international pariah status and reviving 

its economy. Khartoum probably will acquiesce to some US requests, such as increasing 

counterterrorism cooperation and improving humanitarian access, but will be reluctant to take any 

steps that it perceives jeopardize its national security interests.

Political unrest and security threats across the region are likely to intensify as the Presidents of Burundi 

and the Democratic Republic of the Congo (DRC) face public and armed opposition to their rule and the 

Central African Republic (CAR) struggles to cope with a nationwide surge in conflict. Over-stretched UN 

missions in CAR and DRC are unlikely to stem the rising challenges from their concurrent 

humanitarian and security crises.
27

THE WESTERN HEMISPHERE

A key feature of the 2018 political environment in Latin America almost certainly will be popular 

frustration with low economic growth, corruption scandals, and the specter of endemic criminal activity in 

some countries. Larger and increasingly sophisticated middle classes—with greater access to social 

media—are demanding more accountability from their governments. Presidential elections, 

including those in Mexico and Colombia, will occur at a time when support for political parties and 

governing institutions is at record lows and could bolster the appeal of outsider candidates.

Mexico

Mexicans are focused on presidential and legislative elections scheduled for July 2018, in which 

corruption, high violence, and a tepid economy will be key issues. The Mexican Government has 

made slow progress implementing rule-of-law reforms and will continue to rely on the military to 

lead counternarcotics efforts. Mexico’s $1.1 trillion economy benefits from strong economic 

fundamentals, but uncertainty over trade relationships and higher-than-expected inflation could 

further slow economic growth. President Enrique Pena Nieto is focusing on domestic priorities, 

including recovery from the September 2017 earthquakes and managing impacts from potential US 

policy shifts ahead of the elections. In recent years, Mexican US-bound migration has been net 

negative but might increase if economic opportunity at home declined.

Central America

Insecurity and lack of economic opportunities likely will remain the principal drivers of irregular 

migration from the Northern Triangle countries of El Salvador, Guatemala, and Honduras. 

Homicide rates in these countries remain high, and gang-related violence is still prompting Central 

Americans to flee.

Venezuela

Economic woes and international diplomatic pressure probably will put political pressure on the 

Venezuelan Government in 2018. Living standards have declined and shortages of basic goods are 

driving the increase in Venezuelans seeking asylum in the United States and the region. Venezuela’s 

negotiations with creditors probably will lead to messy legal battles. Venezuela almost certainly will 

seek to minimize further disruptions to oil production and exports to maintain its critical oil export 

earnings. Oil prices have increased slightly this year, but crude oil production continues to decline.

Colombia

President Juan Manuel Santos will seek to cement implementation of the Revolutionary Armed 

Forces of Colombia (FARC) peace accord, as campaigning intensifies for the May 2018 presidential 

election. The FARC’s new political-party status and the uncertainty around the transitional justice 

reforms will be a factor in the political environment ahead of elections. Substantial budget 

constraints will slow major programs or policy changes. The influx of FARC dissidents, drug 

traffickers, and other illegal actors into remote areas will challenge security forces during the next 12 

months. Cocaine production in Colombia is at an all-time high, and crop substitution and 

eradication programs are facing stiff local resistance.
28

Cuba

Havana will seek to manage President Raul Castro’s planned retirement in April 2018. Castro’s 

successor will inherit a stagnant economy and a stalled economic reform process.

Haiti

As President Jovenel Moise begins his second year in office, he will confront competing interests 

within his government, a vocal opposition, and a fragile economy. Crime and protest activity will 

test the Haitian National Police following the departure of the UN Stabilization Mission in October 

2017 and the transition to a police-only UN mission.