Can anyone explain the use of "in what" in the following sentence?
In what some are seeing as a failure by Japan to live up to its responsibilities as a world power, only 11 refugees out of 5,000 applicants were granted asylum by Japan in 2014.
I'm thinking the first part before the comma is a nominal relative clause, and "in what" can be replaced with "the thing that". But there is no verb.
Any info will be much appreciated.