MFP: Tough Choices For Small Navies

The following is a guest post inspired by the questions in our Maritime Futures Project.  For more information on the contributors, click here.  Note: The opinions and views expressed in these posts are those of the authors alone and are presented in their personal capacity.  They do not necessarily represent the views of their parent institution U.S. Department of Defense, the U.S. Navy, any other agency, or any other foreign government.

Any attempt to answer question #8 from the MFP faces a problem at a very beginning: If we focus on what should be but isn’t, we eventually risk ending up with a dream fleet disconnected from reality. However, if we focus on what is possible, we risk to be stuck in real-life constraints, unable to conceptualize the next stages of naval development. Therefore, if there appears some fantasy within the my answer below, it means that the right balance is still ahead of me.

Today’s Polish Navy is at the beginning of a modernization process, which assumes construction of conventional submarines, corvettes, patrol ships, mine-hunters, and ASW (anti-submarine warfare) helicopters among others. The dilemma the Navy faces is block obsolescence of most of its assets, which means setting priorities for modernization within the context of a national security strategy based on two pillars — defense of the country and commitment to alliances/cooperation in the field of broader international security.

There is another critical issue to address: Poland’s geo-strategic position and history favors strongly national defense but the same history says that in any serious conflict, the navy will play a rather secondary role. Consequently in cases of significant budget cuts, the choice is as follows:

  • The Navy would invest in submarines as a potent anti-access weapon; surface forces, so useful in maritime security cooperation, will suffer badly, or
  • The focus would be on surface combatants, with a risk of loosing competencies in the operating submarine force, which will be very difficult to reconstruct.

Alternatives offered for consideration would be sacrificing capabilities of larger submarines (interesting to note how the meaning of “large” differs between navies) and instead investing in smaller coastal boats like U210-Mod or Andrasta. Resulting savings should be secured for surface vessel program. That would allow the Navy to maintain its proficiency in the operating submarine force surface vessels fulfilled international obligations. Both pillars of the strategy therefore could be followed, albeit in sub-optimal way.

The surface warship best suited for the Polish or any other smaller navy is linked

Churchill asks, "Why make a battleship when you can build a carrier out of a glacier?"
Churchill asks, “Why make a battleship when you can build a carrier out of a glacier?”

closely to strategy, geography, and advances in technology. Operating in narrow or coastal water puts a premium on small combatants, but if the navy wants to be an active participant in alliances far afield, then demand for seakeeping and self-deployment puts a premium on much bigger ships, unless we accept advanced hull forms. The compromise could be a ship in a range of 2,000 tons. What is possible to achieve in terms of capabilities within such a hull? British naval architect D. K. Brown in his book The British Future Surface Fleet: Options for medium-sized Navies makes a remark about ships’ “unstable designs”. These are ships which are already too costly to be defenseless. Proceeding toward two opposite extreme solutions, one either makes ships cheaper or better arms them: “Chinese junk” or “super battleship”. In a big navy, problems translate to discussions about force structure or “Hi-Lo mix.” In smaller navies the first is useless and the latter is often unaffordable. Just for reference – the Polish Navy projected shipbuilding budget, considered by many as rather too optimistic, is below $300M a year.

The issue is more complicated by the fact that experience and history teaches militaries that any conflict can easily escalate into full-blown war. Therefore, in the case of “unstable design,” they are inclined more towards “super-battleship”, while treasuries driven by other needs and perceived lack of threat would often oppose it. In the past, the solution was to arm a flotilla with asymmetric weapons and make it dangerous for any opponent. This, however doesn’t allow a smaller navy to support effectively allied forces far from its own bases. The modern equivalent of a flotilla could be a sort collection or hybrid of corvette and Offshore Patrol Vessels (OPVs). If a ship would be more corvette than OPV depends on the threat perception and compromise between the Navy and treasury, within constraints of political, financial, technical, and operational environments. It is also Important to consider if the given country has a Coast Guard as a separate service or solely a Navy. Technically, corvettes and OPVs are very different ships; corvettes offer survivability and armament while OPVs offers endurance and low cost. One proposal would be to trade armament for a low-cost which results in light corvette or up-armed OPV. Another is to enhance OPV survivability, increasing the cost.

Why would anybody be interested in hybrids if well-established solutions exist? Because a corvette is dangerously close to the unstable design. The wartime evolution of the Flower-class corvette, symbol of simplicity and low costs, ended with the Loch-class being the best ASW performer of Royal Navy during the WWII but for the cost of Tribal fleet destroyers. If we take a look on LCS from that point of view, for the full cost including modules we can probably purchase a FREMM frigate. As there are limits to cutting cost, the natural tendency will be to arm the ship better. It would be interesting to speculate what a small navy would make of LCS, in that for many of them LCS would be a capital ship!

When your name is HMS DEVASTATION, you can carry whatever propulsion you want!

Predicting which technology will have the biggest impact in the future is practically impossible. Steam power implementation was discouraged by Royal Navy Admiralty. It gave freedom of movement at the cost of logistical complexity, completely changing operational patterns. Not surprisingly, there was strong resistance to such a big change of the status quo. However, what usually makes the big change is a coincidence of many developments rather than a single technology. All-big-gun ships and the long-range fire of Adm. Jacky Fisher would be of no great value without advances in fire control systems. Equally, steam power without coaling stations around the globe would be disastrous for British Empire protection. My preferred mix would consist of the old and the new — robotics with related artificial intelligence, modularity (with some reservations), and artillery.

Autonomous vehicles have spread rapidly, changing old habits. Its story resembles that of naval aircraft — from reconnaissance and scouting to attack roles. Not long ago, Tomahawks paved the way for manned aircraft attacks. Maybe in the future manned craft would lead swarms of robotic weapons, the human role to assess situations and make decisions on spot?

I expect modularity to be helpful in easing conflicting demands for many roles and tasks expected to be performed by a dearth of platforms. The smaller the navy is, the bigger problems seem. The Polish Navy plan calls for 3 corvettes, 3 patrol ships and 3 mine-hunters. That is all for defending the country and forward deployments. Modularity used by coastal navies should generate much less logistical burden if load-out changes were required between deployments and in proximity to bases. Modularity, however should be implemented cautiously; keep in mind the old truth that you have to fight with what you have at hand, not with what is in the logistical pipeline or on drawing boards. It is an important decision to choose what sets of armament and sensors should be fixed and what could be exchangeable.

Choosing artillery (naval gunnery) may be surprising, but a versatility which some see as surpassed may be restored by advances like Volcano ammunition or by electromagnetic gun. With ranges of fire in the order of 100nm, operations in narrow seas means that there will be cases when major naval bases of opponents will be within range of naval artillery. This should incentive us to study cases like the Soviet Baltic Fleet operating from Kronstadt/Leningrad during WWII. Eventually, it should trigger one’s imagination to ask how Royal Navy would handle the problem of Channel convoys if confronted by German long range artillery installed on French coasts, assuming the latter possesses guided munitions? I believe that for a small navy operating in narrow waters, the paradigm of “stand-off weapon” needs to be applied after careful examination, which leads us again to nothing new, but rediscovery of historic battles.

Przemek Krajewski alias Viribus Unitis is a blogger In Poland.  His area of interest is broad context of purpose and structure of Navy and promoting discussions on these subjects In his country

Human Smuggling Across the Gulf of Aden

Bodies of Asyluam Seekers Washed Ashore in Yemen
                                                     Bodies of Asylum Seekers Washed Ashore in Yemen

While Somali piracy may have been significantly down in 2012, another type of illicit activity in the Gulf of Aden has continued to increase.  According  to the Office of the United Nations High Commissioner for Refugees (UNHCR), 107,500 people fled Africa for Yemen via the sea in 2012.  This was an increase from 103,000 in 2011 and the most since these statistics were first collected in 2006.  The majority of the refugees in 2012 were Ethiopian, and they braved dangerous conditions which are estimated to have left at least 100 dead or lost at sea.

The growth in human smuggling over the last year was actually less than between 2010 and 2011, when the number of refugees crossing the Gulf increased from 53,000 to 103,000.  That growth has generally been attributed to the increasing number of Ethiopian migrants, which greatly outnumber all other nationalities.  Until 2009, most people smuggled across the Gulf were Somalis.

MFP: The Future of Piracy

By LCDR Claude Berube, USNR; LT Chad Hutchins, USN; and N.R. Jenzen-Jones

The following is a guest post inspired by the questions in our Maritime Futures Project.  For more information on the contributors, click here.  Note: The opinions and views expressed in these posts are those of the authors alone and are presented in their personal capacity.  They do not necessarily represent the views of their parent institution U.S. Department of Defense, the U.S. Navy, any other agency, or any other foreign government.

1. What manner of broad trends are emerging in pirate activities, and how will these develop in the future? Where will we see continued, increased, or emerging piracy over the next 5-10 years?

 

Piracy in the 21st Century: The Long Ladder Ahead
Piracy in the 21st Century: The Long Ladder Ahead

From a macro perspective, piracy will increase worldwide as western navies continue to contract in size and non-state actors become super-empowered.  Piracy will remain and even flourish in regions of diminished state maritime security caused by land-based conditions.  Half of the National Intelligence Council’s recent Global Trends 2030 top-ten countries of high-risk destabilized governments have significant coastlines – Niger, Nigeria, Kenya, Somalia, and Yemen.  Destabilized nations will offer opportunities to pirate criminal networks as state navies – particularly Western navies – do not have sufficient assets or comparative interests to exert necessary influence.  West Africa will pose a continuing challenge if steps are not taken to curb piracy in the region; significant national interests exist there for many nations, including the US, China, and many European nations.  Energy security will be a key factor in the decision to support counter-piracy strategies in West Africa.

Since its origins, four things have had to be present for piracy to exist: (1) Non-existent or weak government on land, (2) Ungoverned territorial seas, (3) Access to shipping lanes, and (4) Access to boats, manpower, and arms.  It’s important to continually watch any coastal nation which meets these criteria, no matter the size, for developing signs of pirate activity.

 

2. Which response strategies will best limit or curtail pirate activity over the next 5-10 years?

Specific to Somali piracy, current efforts – including coalition forces, independently operating platforms, industry employment of Best Management Practices, and the increased use of armed guards, have been sufficiently effective as evidenced by the decrease in attacks on commercial ships in the Gulf of Aden.  Continued success will however hinge on the sustained availability of coalition forces, which is in turn based on the comparative threats faced by participating states and the impact of their economies and debts to future military operations, acquisitions, and maintenance.  Because of the uncertainty of state naval presence, industry will either return to a pre-2008 level of ‘acceptance of risk’ in the region, turn increasingly to armed guards and other private sector capabilities, or rely more on alternative powers such as India and, especially, China. Broader, cooperative international engagement will be necessary. Land-based engagement strategies will also be increasingly important, but will be largely dependent on access, funding, and political will. The U.S. Department of State is beginning to move in this direction now.

 

3. Which vessels in Western navies should we be looking to for their utility in conducting counter-piracy operations?

 

Will the Coalition hold?
                          Will the Coalition hold?

Policymakers may ask if the best use of a billion dollar warship is as a platform against modern pirates.  While surface warships are a flexible asset, with helicopter detachments providing extended range and tactical small boats for boarding, they come at a price.  Depending on future budgets, Western navies could turn to smaller ships with UAVs or inexpensively modified commercial platforms.  The U.S. Navy, in concert with European navies, could explore building a piracy squadron of ships such as the Sea Fighter (FSF-1) to work in concert with a dedicated mothership.  Modular design of mission-specific ‘packages’ may provide another opportunity to decrease operating costs and use next-generation vessels more effectively.

 

4. What advice would you give to a smaller nation on the counter-piracy specific maritime investments it should pursue, and why?

Smaller nations in destabilized regions rarely have the economic capacity to support a viable counter-piracy force, leaving them with two options.  The first option is to work with larger nations interested in capacity building.  Larger nations and their industries have a need for stability on the high seas for global commerce.  There are a number of capability development programs offered by nations including the U.S. and China.  In Africa, in particular, programs such as African Maritime Law Enforcement Partnership (AMLEP) and Africa Partnership Station (APS) have had some success, but need to be expanded and better integrated into the broader counter-piracy strategy.

 

The second option is to employ vetted, credible maritime security companies which may provide a less-expensive alternative in the long-term.  Maritime security companies have had some success in Africa, providing specific training and personnel where capability gaps exist.  Employing private companies allows countries to focus on nascent piracy, or threats such as illegal, unreported, and unregulated (IUU) fishing or oil bunkering, which may be considered less serious by major powers.  The use of private security companies is generally compatible with working with larger nations, and opportunities for third-party funding may arise in the future.

MFP 9: Final Predictions For The Future

Any final predictions?

This is the ninth and final regular post in our Maritime Futures Project.  For more information on the contributors, click here.  Note: The opinions and views expressed in these posts are those of the authors alone and are presented in their personal capacity.  They do not necessarily represent the views of their parent institution U.S. Department of Defense, the U.S. Navy, any other agency, or any other foreign government.

LT Drew Hamblen, USN:
Navy’s experiments with biofuels will fizzle out as an abundance of natural gas and crude oil prices it out of the market.

Felix Seidler, seidlers-sicherheitspolitik.net, Germany:

La Marinha do Brasil
La Marinha do Brasil

The international maritime security debate is dominated by U.S. future capabilities, European decline, and the Asian arms race – in particular China. Yet beyond that Brazil will be an interesting player. The country seems to pursue an ambitious fleet-building agenda. Moreover, Brazil trained China’s carrier pilots. With a mid- to long-term perspective, a Brazilian blue-water navy might go on expeditionary tours – not to win wars per se, but to take part in international operations or underline Brazil’s new geopolitical status. Why shouldn’t Brazilian and Chinese carriers visit each other’s countries to deepen political ties between both governments?

Bryan McGrath, Director, Delex Consulting, Studies and Analysis:
Most of my predictions will be wrong.

Sebastian Bruns, Fellow, Institute for Security, University of Kiel, Germany:
“A ship in port is safe, but that is not what ships are built for”
Attributed to Benazir Bhutto

CDR Chuck Hill, USCG (Ret.):
In the most likely conflicts, large numbers of vessels will be needed to perform blockade and marine policing to prevent use of the use of the seas for transport of weapons, supplies, and personnel. We will never have “enough.” The U.S. Coast Guard will be needed to supply some of them.

Biometrics, the ability to positively identify individuals, is already in use in counter-piracy operations and may become important in tracking down terrorists and agents in unconventional asymmetric conflicts.

States led by China will attempt to reinterpret the United Nations Convention on the Law of the Sea (UNCLOS) to apply the restrictions and requirements of Innocent Passage to the Exclusive Economic Zone (EEZ) as well as the Territorial Sea. Most important is Article 58 Section 3 of UNCLOS: “In exercising their rights and performing their duties under this Convention in the EEZ, States shall have due regard to the rights and duties of the coastal State and shall comply with the laws and regulations adopted by the coastal State in accordance with the provisions of this Convention and other rules of international law in so far as they are not incompatible with this Part.” China will interpret this to mean that anything other than expeditious transit including “spying,” “hovering,” flight ops, and submerged operations might be considered illegal.

LCDR Mark Munson, USN:

I see your EEZ is as big as mine.
                                                                            I see your EEZ is as big as mine.

The notion of an exclusive economic zone (EEZ) is not new (the formal definition of it extending out 200 nautical miles dates to the 1982 UN Convention on the Law of the Sea (UNCLOS), but it seems to increasingly be at the heart of the various maritime disputes. China’s differences with its neighbors in the South and East China Seas revolve around the desire to secure control of underwater resources by maximizing its EEZ. In addition, China has advocated a state’s right to control or regulate the military activities of other states occurring in its EEZ. If accepted by the rest of the world (which most countries currently do not), such a notion would significantly impact the ability of states like the U.S. to operate forward at sea like it traditionally has. In addition, it is the realization of the negative impacts of a state’s inability to enforce activity in its EEZ (such as piracy in Somalia, maritime banditry and oil theft in the Gulf of Guinea) that has led many states to realize that capable maritime security forces are important, although they may not be able to afford them.

YN2(SW) Michael George, USN:
The U.S. Navy is a vital force in our nation’s defense and will continue to be vital to providing secure waterways around the world. But the fact that it is a national navy and not an international one will cause leaders in other countries to make greater efforts to become more self-reliant.

LT Jake Bebber, USN:
Few in the U.S. want war with China, and few in China want war with the U.S. That being said, the wisdom of the ancients suggests that we are on a collision course. 2,500 years ago, Thucydides wrote “The growth of the power of Athens, and the alarm which this inspired in Lacedaemon, made war inevitable.” Fear, power and interest, often involving third parties (see Corcyra in 440 B.C. or Japan today), drive nations to war, and human behavior remains largely unchanged over the last 5,000 years of recorded history, despite our fallacious belief in “progress.” War will come when it is most inconvenient, unexpected, dangerous, and costly – not when we are prepared.

LT Alan Tweedie, USNR:
DDG 1000 will cost even more than we expect and none of the three we are building will ever see 20 years of service life. Neither this ship nor anything else like it will be a part of our Navy’s future.

LT Scott Cheney-Peters, USNR:
These are a little further out in left field, and focus a bit more on geopolitics than the predictions made to earlier questions, so I fully expect them to make me look a bit ridiculous in the years ahead:

While much has been written about Brazil’s burgeoning economic power – slowing of late – and the nation’s drive to reinvigorate its naval capabilities, it will be Columbia and Mexico that surprise the Western Hemisphere’s observers with their growing naval clout. The focus of these nations’ fleets will also shift from the traditional hemispheric concerns to protecting trade ties to Africa and Asia. This is of course predicated on both countries’ ability to keep a lid on domestic discontent and violence while extending their economic booms. Other South American armadas – such as those of Peru, Uruguay, and Chile – will endeavor to maintain their small but professional capabilities, and undertake a similar drive (underway in many cases) to boost ties across the Pacific and Atlantic.

The leaders of both Cuba and Venezuela have not long to live, yet neither change at the top will mean much in terms of naval policy. Both nations may seek to defrost relations with the U.S. and strengthen integration in cooperative regional maritime efforts – although again, little change from now.

The professionalization of Africa’s maritime forces will continue apace in those nations enjoying peaceful transitions of government. Cooperative regional efforts will combat the threats of piracy, maritime robberies, and drug-running – but the dangers will continue at modest levels and readily flourish in any coastal power vacuum. Counter-drug ops will prove the hardest to due to pervasive levels of corruption in states such as Guinea-Bissau.

The Persian/Arabian Gulf will remain a tinderbox – not due to a looming confrontation with Iran, but because the Arab Spring has yet to fully play out on (or off the coast of) the Arabian Peninsula. I don’t presume to know the outcome or timeline, but escalating repression of the Shia majority in Bahrain could lead to untenable situation for the U.S. Fifth Fleet HQ, and/or a change of government.

Lastly, in Asia, the oft-overlooked Indonesia has the potential to develop into a naval power in its own right. The nation’s leadership has aspirations of becoming a key player in South Asia, and it will likely attempt to play the role of a non-aligned honest broker in any regional stand-off. If you’re looking for good coverage of Indonesia (and its ties with Australia), check out the sites Security Scholar and ASPI.

Of course, we could always just end up with this:

Simon Williams, U.K.:
Something this writer believes policy makers and the military should be mindful of in the coming decades will be the increasing significance of the maritime realm in dictating the machinations and dynamic of international relations. Not only are burgeoning economic powers in the Far East developing credible naval forces to guard their interests, but, having suffered a bloody nose in a protracted counter-insurgency campaign in Afghanistan, Britain and the United States will find it difficult to conjure up the public support for any ground operations in the near future.

LCDR Joe Baggett, USN:
No predictions – Just observations:
– In my opinion, the United States and its partners find themselves competing for global influence in an era in which they are unlikely to be fully at war or fully at peace.
– The security, prosperity, and vital interests of the United States are increasingly coupled to those of other nations.
– We must be as equally committed to preventing wars as we are to winning them.
– As ADM Locklear once said “I value surface forces that are:
1) Sufficient in number: you have to be there in order to make a difference
2) Capable, both offensively and defensively: our lethality must be compelling, and our presence re-assuring to our allies
3) Ready, both in proficiency to the full range of potential missions and in proximity to where they’re needed
4) Relevant: the right mix of the above factors to achieve the broad missions sets assigned.”