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Cover art for Why states that control rare earth elements or energy leverage that control as foreign policy

Why states that control rare earth elements or energy leverage that control as foreign policy

August 31, 2026 · 15 min

Iris Holm & Hana Field

States controlling concentrated, hard-to-substitute resources — rare earths, oil, grain — can weaponize that control against importers who lack short-term alternatives. China's October 2025 mineral export controls, Russia's post-2022 Black Sea grain disruption, and OPEC's 1973 oil embargo all share the same three-part logic: concentrated supply, inelastic demand, and high adjustment costs.

States that control critical resources — including oil, rare earth elements, lithium, copper, and food commodities — can convert that control into geopolitical leverage when buyers face limited short-term substitutes.

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About this episode

Resource leverage — the use of concentrated commodity supply as a foreign policy instrument — is one of the most legible patterns in modern geopolitics. And yet importers keep waking up without a plan B. This episode works through why. The structural logic is straightforward: concentrated supply, inelastic short-run demand, and adjustment costs the importer can't quickly close. When all three conditions align, an exploitable leverage window opens. What's striking is how consistently that window has appeared across completely different commodities and decades — the 1973 OPEC oil embargo, China's 2010 rare earth restrictions on Japan, Russia's disruption of Black Sea grain routes after 2022 — and how consistently the same seam in the legal architecture fails to hold. The episode pays particular attention to what makes rare earths distinct: China's dominance isn't just in mining, it's in the processing and refining stage that transforms raw ore into usable material. That chokehold is considerably harder to replicate elsewhere quickly. But the sharpest part of the conversation is about who actually absorbs the cost during the window between coercive act and importer response. Wealthy nations can fund substitution research, build strategic reserves, and reorganize supply chains along political-alignment lines. Net food-importing developing nations — states that had no stake in the dispute and no hand in designing the dependency — absorb the humanitarian exposure first, and wait the longest for any of the long-term fixes to arrive.

Frequently asked

How does China use rare earth exports as a foreign policy weapon?

China controls not just rare earth mining but the refining and processing stage, meaning importers cannot easily bypass it even if ore is found elsewhere. In 2010 China restricted rare earth exports to Japan during a fishing dispute, and in October 2025 announced its most expansive critical mineral export controls ever, covering rare earths, lithium batteries, and superhard materials.

What are the conditions that make resource leverage work in international relations?

Resource leverage requires three simultaneous conditions: supply concentrated among few exporters, short-run demand that is inelastic because no substitutes exist immediately, and adjustment costs the importer cannot close quickly. Remove any one condition and the leverage collapses. This same three-part structure explains OPEC's 1973 oil embargo, China's 2010 and 2025 rare earth controls, and Russia's grain disruption.

Did Russia use food as a weapon after 2022?

Russia disrupted Black Sea grain routes after its 2022 invasion of Ukraine, causing global food price spikes absorbed disproportionately by net food-importing developing nations — countries with no stake in the conflict and no financial buffer to wait out the disruption. Using food as a weapon is prohibited under international frameworks, but enforcement mechanisms failed to prevent it.

Does using resource coercion hurt the country imposing it?

Yes, but the damage lands slowly and diffusely. Russia permanently lost European energy customers after 2022. China's 2010 rare earth restrictions against Japan triggered WTO disputes and diversification investment that eroded China's long-term leverage. Each coercive act tends to accelerate the importer's escape route, undermining future leverage — though if the exporter's real goal is short-term signaling rather than market share, that paradox may not apply.

What is 'weaponized interdependence' in geopolitics?

Weaponized interdependence is when a state exploits an asymmetric economic dependency — where one side needs a resource more urgently and cannot substitute quickly — to extract political concessions. The term applies to China's rare earth dominance, OPEC's oil embargo, and Russia's energy and grain leverage. The mechanism has recurred across 1973, 2010, and 2022 with structurally identical conditions each time.

Grounded in 10 sources
The trend towards nationalization of the lithium industry as a threat to Chinese companies operating in Argentina and Chile · doi.org
Copper Crunch: A Looming Constraint for Energy Policy · doi.org
A critical minerals perspective on the emergence of geopolitical trade blocs · sciencedirect.com
Geopolitical rivalry over strategically important industries · tandfonline.com
Putting Economics Back Into Geoeconomics · aeaweb.org
Critical Minerals Explained: Why They Matter for Geopolitics, Clean Energy & Tech · belfercenter.org
Economic Dependence, Political Leverage, and War · bradleycarlsmith.com
The Dynamics of Rare Earth Trade: China's Dominance and ... · cadmus.eui.eu
Did China really ban rare earth metals exports to Japan? | East Asia Forum · eastasiaforum.org
Critical Minerals & Energy Geopolitics — GDF Academy — Global Diplomatic Forum · gdforum.org
Read transcript

Hana Field: Okay, I have to ask — did you read anything about the October 2025 controls before this, or am I about to completely derail your afternoon?

Iris Holm: I'd seen it. Hadn't sat with the implications yet. What's the angle?

Hana Field: So the angle is this — China's Ministry of Commerce in October 2025 announced the most expansive export controls they've ever put on critical minerals. Rare earth materials, rare earth technology, lithium batteries, superhard materials, all of it. And my first instinct was: this is just 2010 again but bigger. Because in 2010, China restricted rare earth exports to Japan — over a fishing dispute, which I still find almost impossible to hold in my head — and Japan's electronics industry had no substitutes available in any near-term timeframe. The supply just stopped.

Iris Holm: It is 2010 again, structurally. But calling it 'again' might actually obscure the important thing.

Hana Field: What's the important thing?

Iris Holm: That this mechanism — weaponizing interdependence, to give it the precise name — has been working since 1973. OPEC's oil embargo: Arab member states restricted petroleum to Western nations supporting Israel, reshaped geopolitics overnight. Same three conditions every time: supply concentrated in few exporters, demand inelastic in the short run because there are no substitutes, adjustment costs the importer cannot rapidly close. That's the structural logic. And it's not new. What's new is that it's now running on the materials inside every clean energy system and defense platform on earth.

Hana Field: Which makes rare earths and lithium feel different from oil in 1973 — not because the mechanism is different, but because the transition we're in the middle of makes the dependency so much harder to escape quickly.

Iris Holm: Right — and here's the tension. After 2010, Japan filed WTO disputes, the EU and the US joined, and a whole diversification infrastructure got built. The coercive act contained the seeds of its own obsolescence. So the question — and this is genuinely open — is whether the October 2025 controls are operating in the same window, or whether the window has already started closing.

Hana Field: And if the window is shrinking, then every act of coercion is accelerating exactly the response that makes the next act of coercion less effective — and that contradiction is, I think, the quiet thing underneath all of this.

Iris Holm: That's the load-bearing question, yes.

Hana Field: But wait — if the window is the thing, I want to understand what actually makes it a window and not just a wall. Because from the outside it looks like: China has the rare earths, everyone needs them, done. But that's not actually the whole story, is it.

Iris Holm: No. The wall framing misses the mechanism entirely. Think of it this way — you're the only coffee shop in a town where everyone is already running late for work. You can charge whatever you want this morning. Not because coffee is special. Because nobody has time to drive to the next town.

Hana Field: The drive is the adjustment cost.

Iris Holm: Exactly. Supply is you. Inelastic demand is the commuters — they need coffee now, not in six months when a new shop opens. And adjustment costs are the drive. All three conditions have to be present. Remove any one of them and the leverage collapses. That's the whole mechanism.

Hana Field: And what makes rare earths so alarming is — so China doesn't just dominate mining, and I think this is the detail that really lands when you sit with it — they dominate the processing stage too. The refining. Which means even if you found the ore somewhere else, you'd still have to send it through Chinese facilities to turn it into something usable. The chokehold isn't the mountain, it's the factory after the mountain.

Iris Holm: That's where supply chain concentration risk actually bites. It's not raw extraction — it's the processing monopoly. Same structural position OPEC held in oil, except OPEC was a cartel you could at least theoretically negotiate with collectively.

Hana Field: And then Russia runs the same play on grain — actually, that one is the one that stops me cold every time. Ukraine is one of the world's major grain exporters, Russia disrupts the Black Sea routes after 2022, and suddenly food prices spike in places that had nothing to do with the conflict. Net food-importing nations, mostly. Families in Yemen absorbing a price shock generated somewhere on the other side of the world.

Iris Holm: And 1973 before that. Oil, rare earths, grain — three completely different commodities, decades apart, and the same three-part logic fires every time. That's not coincidence.

Hana Field: It's a structural feature.

Iris Holm: Wherever those three conditions align — concentrated supply, inelastic short-run demand, high adjustment costs — you get an exploitable leverage window. It's almost physics at that point. The exporter doesn't have to be clever. The structure does the work.

Hana Field: Which makes the question you're building toward almost uncomfortably obvious — if this is predictable enough to describe as a pattern, why do importers keep waking up on a Tuesday with no Plan B? Like, Japan in 2010 — fifteen years of buying rare earths from China, and when the exports stopped, there was genuinely nothing to fall back on.

Iris Holm: That's the gap. The mechanism is legible in hindsight every single time. The importer responses — diversification, strategic reserves, WTO proceedings, substitution investment — they all work eventually. They just work slowly. And the exporter's leverage lives entirely in that lag.

Hana Field: And that lag — that's where everything actually happens to people. Like, the structure is clean in retrospect, but in the gap between the coercive act and the diversification response, that's where a manufacturing manager in Stuttgart is telling her team they have no cerium for the next quarter and she doesn't know when that changes.

Iris Holm: Right — but here's the complication. Japan's WTO filings after 2010 didn't just resolve the dispute. They seeded the infrastructure that now limits how much the October 2025 controls can actually bite.

Hana Field: Wait — so the legal response was also a diversification response?

Iris Holm: Effectively, yes. Japan, the EU, the US — they filed separately, they pursued different institutional responses, and that fragmentation actually mattered. You ended up with divergent supply strategies, reserve programs, substitution research. The coercive act funded its own antidote. China won the round and spent the decade losing the structural position.

Hana Field: Which means — and this is the thing that unsettles me — the more forcefully you pull the lever, the faster the other side builds the escape route. So every escalation is eating its own future leverage.

Iris Holm: That's the paradox exactly. Now apply it to Argentina and Chile nationalizing lithium assets. Sounds like sovereignty. But if you deter the investment needed to actually develop those deposits, you've asserted control over something that stops generating value. The leverage evaporates before you use it.

Hana Field: Oh — that's almost tragic. You seize the asset to gain power over it, and the seizure is the thing that makes it worth less.

Iris Holm: Russia absorbed permanent market losses after 2022. Those energy customers are not coming back. So the question is — does the exporter actually care about the long game, or is it optimizing for something else entirely?

Hana Field: Domestic legitimacy, maybe. Like, the cost-benefit calculus looks completely different if you're not optimizing for market share in 2035 — you're optimizing for whether your constituency still supports you on Thursday.

Iris Holm: Which the framework doesn't resolve. Whether China's 2025 controls produced any measurable political concession — we genuinely don't know yet. It might have just accelerated Western friend-shoring and left the leverage window emptier than before.

Hana Field: And that unresolved-ness is — yeah, that's actually the point, isn't it. We're inside the lag right now.

Iris Holm: We are. And the food side of this makes it considerably harder to sit with — because the people absorbing the transition costs in grain didn't design the dependency and don't have the buffers to wait it out.

Hana Field: And that's — so there's a piece of this we haven't touched yet, about food as a weapon being prohibited under international frameworks and Russia doing it anyway and who exactly paid that price, and I think when we get there it breaks the clean version of this story open in a way that's uncomfortable.

Iris Holm: So that prohibition — food as a weapon, banned under international legal frameworks — Russia crossed it anyway. Black Sea grain routes, post-2022. Ukraine is one of the world's major grain exporters, the disruption caused global food price spikes, and the countries that absorbed the worst of it were net food-importing developing nations. States that had zero stake in the Russia-Ukraine dispute.

Hana Field: Countries that didn't design the dependency, didn't trigger the conflict, and had no financial buffer to wait out the transition.

Iris Holm: And the norm failed completely. Not bent — failed. The prohibition exists, Russia did it anyway, and the enforcement mechanism? WTO-adjacent rulings that slow the abuse but don't stop it. Same pattern as the rare earth controls against China. Rules created after 2010, China announces expansive new controls in October 2025. The legal architecture keeps failing at the same seam.

Hana Field: Wait — so it's the identical gap. Minerals, food, same enforcement ceiling.

Iris Holm: 1973, 2010, post-2022. Different commodities, different decades, same seam. The rules slow it. They do not prevent it.

Hana Field: And the cruelest part — I mean, the thing that actually stops me — is that wealthy importers can buffer the transition period. They have reserves, they have capital to diversify fast, they can absorb higher prices while friend-shoring gets built out. But a net food-importing developing nation doesn't have that runway. The time lag isn't a policy inconvenience for them, it's — it's acute.

Iris Holm: That's the real cost of the leverage window. Not the strategic standoff. The time between the coercive act and the importer's countermeasures maturing — supplier diversification, strategic reserves, substitution investment — all of it effective eventually, none of it fast. And during that gap, bread prices double in Yemen.

Hana Field: Families that had nothing to do with it. That's — yeah, that's the thing the clean structural story hides.

Iris Holm: And friend-shoring — reorganizing supply chains along political-alignment lines — is the structural answer being built right now. But it takes years to construct parallel supply ecosystems. Years is not a unit of time that helps anyone whose food costs doubled last spring.

Hana Field: So what actually protects them during the window? Because the legal norm didn't. The WTO proceedings against China's rare earth controls — they produced responses, eventually, but the gap was still years wide. And for food the humanitarian exposure is so much faster.

Iris Holm: Frankly — nothing reliable. The importer toolkit works over the long arc. It does not close the acute exposure for the most vulnerable during the window. That's the gap the legal architecture was supposed to fill, and it demonstrably doesn't.

Hana Field: And the exporter absorbs real damage too — Russia lost permanent energy customers after 2022, those markets are gone. But that damage lands later, diffuse, spread across years. The hunger in a net food-importing nation lands in weeks. The asymmetry in timing is — it's almost as cruel as the coercion itself.

Iris Holm: The mechanism punishes the uninvolved first and the aggressor eventually. That's the uncomfortable symmetry sitting under all of this.

Hana Field: And I don't think I can settle whether that's a mistake or not — the states doing this. Because if China's October 2025 controls were never about lithium market share in 2035, if they were always about signaling something on Taiwan, then the self-undermining paradox just... doesn't apply. They got the signal out. The leverage window served its purpose and the long-term erosion is someone else's problem.

Iris Holm: That's the part that doesn't resolve cleanly. Whether the exporter is even playing the game we think they're playing.

Hana Field: And meanwhile the copper crunch is building — decarbonization demand, resource nationalism among copper exporters — and we're about to run the same mechanism again on a different critical mineral. Rare earths, lithium, cobalt, copper. The list just grows and the window logic applies every time.

Iris Holm: The wealthy importer funds substitution research. Files WTO disputes. Builds reserves. The net food-importing developing nation absorbs bread prices that doubled and waits for none of that to arrive in time.

Hana Field: And that's — yeah, I think that's where I actually land. Not with an answer. Just with that asymmetry sitting there, not going anywhere.

Iris Holm: Genuinely open. I don't have a better frame for it than that.

Hana Field: Thanks for thinking through it with me. Needed someone to keep me from making it too clean.

Iris Holm: The clean version was never going to survive. Good conversation.