February 6, 2023

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FOREWORD

During the coming year, the United States and its allies will confront a complex and pivotal international security environment dominated by two critical strategic challenges that intersect with each other and existing trends to intensify their national security implications. First, great powers, rising regional powers, as well as an evolving array of non-state actors, will vie for dominance in the global order, as well as compete to set the emerging conditions and the rules that will shape that order for decades to come. Strategic competition between the United States and its allies, hina, and Russia over what kind of world will emerge makes the next few years critical to determining who and what will shape the narrative perhaps most immediately in the context of Russia’s actions in Ukraine, which threaten to escalate into a broader conflict between Russia and the West. Second, shared global challenges, including climate change, and
human and health security, are converging as the planet emerges from the COVID-19 pandemic and confronts economic issues spurred by both energy and food insecurity. Rapidly emerging or evolving technologies continue to have the potential to disrupt traditional business and society with both positive and negative outcomes, while creating unprecedented vulnerabilities and attack surfaces, making it increasingly challenging to predict the impact of such challenges on the global landscape.

These two strategic challenges will intersect and interact in unpredictable ways, leading to mutually reinforcing effects that could challenge our ability to respond, but that also will introduce new opportunities to forge collective action with allies and partners, including non-state actors. The 2023 Annual Threat Assessment highlights some of those connections as it provides the IC’s baseline assessments of the most pressing threats to U.S. national interests. It is not an exhaustive assessment of all global challenges. This assessment addresses both the threats from U.S. adversaries and functional and transnational concerns, such as weapons of mass destruction and cyber, primarily in the sections regarding threat actors, as well as an array of regional issues with larger, global implications.

Russia’s unprovoked full-scale invasion of Ukraine has highlighted that the era of nation-state competition and conflict has not been relegated to the past but instead has emerged as a defining characteristic of the current era. While Russia is challenging the United States and some norms in the international order in its war of territorial aggression, China has the capability to directly attempt to alter the rules-based global order in every realm and across multiple regions, as a near-peer competitor that is increasingly pushing to change global norms and potentially threatening its neighbors. Russia’s military action against Ukraine demonstrates that it remains a revanchist power, intent on using whatever tools are needed to try to reestablish a perceived sphere of influence despite what its neighbors desire for themselves, and is willing to push back on Washington both locally and globally. Besides these strategic competitors, local and regional powers are seeking to exert their influence, often at the cost of neighbors and the world order itself. Iran will
remain a regional menace with broader malign influence activities, and North Korea will expand its WMD capabilities while being a disruptive player on the regional and world stages.

At the same time, as the nations of the world strive to recover from the COVID-19 pandemic, they are beset by an array of shared, global issues. The accelerating effects of climate change are placing more of the world’s population, particularly in low- and middle-income countries, under threat from extreme weather, food insecurity, and humanitarian disasters, fueling migration flows and increasing the risks of future pandemics as pathogens exploit the changing environment. Efforts by Russia, China, and other countries to promote authoritarianism and spread disinformation is helping fuel a larger competition between [ 5 ] democratic and authoritarian forms of government. This competition exploits global information flows to gain influence and impacts nearly all countries, contributing to democratic backsliding, threats of political instability, and violent societal conflict through misinformation and disinformation.

Regional and localized conflicts and instability will continue to demand U.S. attention as states and nonstate actors truggle to find their place in the evolving international order, attempt to navigate great power competition, and confront shared transnational challenges. Regional challengers, such as Iran and North Korea, will seek to disrupt their local security environment and garner more power for themselves, threatening U.S. allies in the process. In every region of the world, challenges from climate change, demographic trends, human and health security, and economic disruptions caused by energy and food insecurity and technology proliferation will combine and interact in specific and unique ways to trigger events ranging from political instability, to terrorist threats, to mass migration, and potential humanitarian emergencies.

The 2023 Annual Threat Assessment Report supports the Office of the Director of National Intelligence’s transparency commitments and the tradition of providing regular threat updates to the American public and the United States Congress. The IC is vigilant in monitoring and assessing direct and indirect threats to U.S. and allied interests. As part of this ongoing effort, the IC’s National Intelligence Officers work closely with analysts from across the IC to examine the spectrum of threats and highlight the most likely and impactful near-term risks in the context of the longer-term, overarching threat environment. The National Intelligence Council stands ready to support policymakers with additional information in a classified setting.

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