By Daniel J. Kostecka
The China Coast Guard (CCG) is growing in capability, capacity, and confidence. With an established presence throughout China’s “near seas” in East Asia and further abroad in the North Pacific on fishery patrols, the possibility of additional long-distance deployments by the CCG should be seen as a matter of when and not if.1 This is especially true in waters where Chinese interests and citizens are threatened but the cooperative look of the CCG’s white hulls presents a more appealing optic than the more confrontational appearance of China’s People’s Liberation Army Navy’s (PLAN) gray hulls. One such location is off the west coast of Latin America in the Eastern Pacific on counter-narcotic patrols due the increasing problem of illegal drugs from Latin America making their way across the Pacific to Chinese consumers.2
The expansion and modernization of China’s maritime forces, in particular the PLAN, has received a great deal of attention. The PLAN is also the largest navy in the world with an overall battle force of over 360 ships, including more than 130 major surface combatants and more than 60 submarines along with its own aviation arm of more than 300 land-and sea-based fixed and rotary wing aircraft of all types.3 The PLAN is an increasingly modern and flexible force capable of conducting a wide range of peacetime and wartime missions at expanding distances from the Chinese mainland. From counter-piracy patrols in the Gulf of Aden, to hospital ship deployments to Latin America, to submarine patrols in the Indian Ocean, and long-range operations in the Central Pacific, the PLAN is an increasingly global force. It now operates in all of the U.S. Navy’s numbered fleet areas of responsibility in support of China’s expanding interests.4
Matching the PLAN’s impressive modernization is the growth of the CCG. The modern CCG is the result of the 2013 consolidation of four legacy maritime law enforcement agencies. With a combination of the agencies’ older ships, repurposed PLAN ships, and increasingly new construction, the CCG has rapidly grown into the largest maritime law enforcement agency in the world.5 The white-hulled ships of the CCG are now a common sight throughout China’s “near seas” within the first island chain, particularly in contested waters near features such as Scarborough Reef, the Senkaku Islands, and Second Thomas Shoal as well as near foreign drilling rigs and survey operations.6 Backed up by the PLAN and the ships of China’s Maritime Militia, the CCG is Beijing’s tool of choice for intimidating rival maritime claimants throughout the region.7 However, with 140 ocean-going ships of 1000 tons or greater—including 60 ships of 2500 tons or greater—the CCG has more than enough capacity to expand its operations beyond regional waters.
An expansion of its operating areas on the world’s oceans in the coming years should be expected,8 particularly as the CCG is already quietly increasing its participation in international fisheries patrols in the Northern Pacific.9 Since 1994, the U.S. Coast Guard (USCG) has hosted its Chinese counterparts onboard U.S. ships operating in the Northern Pacific in support of efforts to stem illegal high-seas driftnet fishing, much of it by Chinese fishermen.10 Since joining the Japan-based North Pacific Fisheries Commission (NPFC) in 2015,11 the CCG has also sent its own cutters to patrol waters in the North Pacific, oftentimes in a cooperative manner through joint patrols with exchanges between the USCG and the CCG in the North Pacific. These patrols serve as welcome examples of cooperation during times of maritime tensions in East Asia.12
In addition to building on the model established by its operations in the North Pacific, deploying the CCG further abroad in a cooperative manner has additional precedent in how Beijing has used participation in internationally sanctioned missions to expand the global footprint of the PLAN. For example, in early 2009 the PLAN deployed a task group to the Gulf of Aden to participate in international counter-piracy patrols under UNSCR 2125; in early 2014 a PLAN frigate assisted in escorting the removal of chemical weapons from Syria; and in 2011 and 2014 the PLAN assisted with non-combatant evacuation operations in Libya and Yemen. The Yemen mission involved evacuating over 200 non-Chinese citizens.13 Additionally, deployments by the PLAN’s hospital ship Daishan Dao to Africa, Latin America, Southeast Asia, and Oceania help establish the legitimacy of the PLAN as a purveyor of goodwill and maritime security.14 Similar to the deployment of the PLAN for counter-piracy patrols under the auspices of UNSCR 2125, the Chinese could deploy CCG ships to Latin American waters under the provisions of UNSCR 2482 which specifically calls out criminal activity, including drug trafficking, in aiding and abetting terrorist groups.15
Latin America is a region of growing importance to the PRC. China’s massive Belt and Road initiative now involves over 130 countries and over $500 billion in investment and includes a growing list of nations in Latin America with Panama the first to sign on in 2017.16 However, it is the enduring problem of drugs produced in Latin America that could lead to a CCG presence in the Western Hemisphere. Growing Chinese affluence and the fact that drugs often fetch higher prices in Asia and Australia than North America make China a natural market for cocaine produced in Latin America.17 According to some estimates, a kilogram of cocaine can fetch between two and three times as much in Hong Kong as in Los Angeles.18 While increased transportation costs factor into the higher prices found on the other side of the Pacific Ocean, it is easy to see why cocaine producers and distributors in South America view China—and the rest of East Asia for that matter—as a lucrative market. At this time, Chinese authorities are cooperating with those from other nations in combating the problem in East Asia. However, it is possible that in the future Beijing could decide it has an interest in establishing a Chinese military/law enforcement presence in the Western Hemisphere to help stanch the flow of drugs at their source.19
The CCG’s involvement in North Pacific fisheries patrols and the PLAN’s involvement in internationally sanctioned missions provide the basic template and rationale for CCG counter-drug patrols in the Western Hemisphere. The PLAN’s deployment to the Gulf of Aden in 2009 was generally viewed as a welcome addition to the navies already operating in the area; the CCG’s presence in the North Pacific is viewed positively as well.20 With U.S. and partner nation forces stretched thin to battle the never-ending flow of drugs coming from South and Central America, a deployment by the CCG of one or two cutters would likely be welcomed, at least by some of the regional governments that increasingly enjoy good relations with Beijing.21
From a capacity standpoint, the CCG can easily take on this mission. It is worth noting that while approximately 75 percent of the CCG’s 140 cutters displacing over 1000 tons were added in the past decade, the USCG—with fewer than 40 cutters of equivalent size—still relies on some ships built in the 1960s.22 Further, in this specific case the CCG’s white hulls would likely be a preferred option over the PLAN’s gray hulls since counter-drug activity is seen as primarily a law enforcement mission. Even U.S. Navy ships engaged in counter-drug operations on the high-seas embark Coast Guard Law Enforcement Detachments due to the provisions of the Posse Comitatus Act.23 PLAN ships could also raise additional concerns in the U.S. due to long standing American sensitivities over the presence of foreign military forces in the Western Hemisphere dating back to the establishment of the Monroe Doctrine.24 A more visibly cooperative presence by the CCG in Latin American waters could also serve an additional purpose of calming growing concerns in the region over illegal fishing by Chinese fishermen. CCG assets deployed for counter-drug patrols could even find themselves diverted to performing a mission similar to what they are currently performing in the North Pacific in cooperation with regional maritime forces.25
USCG long-distance operations provide an additional template for CCG deployments in distant waters. While primarily responsible for maritime safety and security in waters close to the United States, the USCG is no stranger to global operations. The Coast Guard’s proud history includes escorting convoys across the Atlantic in both world wars, riverine patrols during the Vietnam War, and sanctions enforcement in the Persian Gulf during Operation Desert Shield. In recent years, the USCG is once again answering the call to expand its operations beyond home waters by deploying ships and personnel to the Western Pacific.26 During 2019 the cutters USCGC Stratton and USCGC Bertholf deployed to the Pacific under the command of the US Navy’s Japan-based 7th Fleet, conducting operations such as sanctions enforcement against North Korea and a transit of the Taiwan Strait by Bertholf in March alongside the destroyer USS Curtis Wilbur.27 The USCG is also increasing the number of ships homeported in Honolulu, Hawaii, with plans to base three Sentinel-class fast response cutters in Guam. In October 2019, two Honolulu-based cutters, USCGC Joseph Gerczak and USCGC Walnut, operated in Oceania with ships of the Royal Australian and Royal New Zealand Navies. The United States has also sold surplus cutters to nations such as the Philippines, Vietnam, and Sri Lanka, and USCG personnel assisted with maintenance and logistics support for these ships.28
USCG goals in the region are ambitious. As the Commandant of the Coast Guard Admiral Karl Schultz stated, “My goal for the Coast Guard is to be a partner of choice in the region. So, we tailor our services to the needs of the nation we are supporting… Through engagement, partnership and presence, we are a maritime bridge between the Department of Defense’s lethality and the State Department’s diplomacy.”29 Admiral Schultz’ diplomatic language aside, the rationale for an increased presence in the Western Pacific for the USCG is clear: supporting great power competition with the People’s Republic of China. Furthering this point, Admiral Schultz stated:
“In the face of coercive and antagonistic behavior, the United States Coast Guard offers transparent engagement and partnership. There’s the Chinese Coast Guard – used to be under civilian authority, it is now through the People’s Military Police, a direct report to the CCP government. You look at the Maritime Militia. I think we are seeing behaviors out of the Chinese Coast Guard, out of the Maritime Militia, that are not consistent with the rule-based order.”30
The CCG’s coercive operations are an increasing concern in East Asia, particularly in disputed areas of the South China Sea. Engagement and partnership building by the USCG in the region provides American strategists and planners with another tool to respond with, particularly since Coast Guard white hulls sometimes provide a better image than Navy gray hulls.31 Such considerations are valid and there is no doubt the USCG will make contributions to maritime security in the Western Pacific and East Asia. However, while USCG operations in East Asia will not be why the CCG deploys to the Eastern Pacific, the possibility that Beijing would publicly call out the precedent established by the CCG’s American counterpart in establishing a CCG presence in foreign waters cannot be discounted.
While there is no guarantee the CCG will deploy to the waters of the Western Hemisphere and the Eastern Pacific to conduct counter-drug patrols off Latin America, U.S. planners and strategists who wrestle with how to deal with the growing presence of the PLAN and the CCG on the high-seas need to be open to this possibility. China is a global economic power and a global commercial maritime power.32 China’s growing economic footprint in Latin America and concerns about the flow of drugs from Latin America to China are legitimate national interests that Beijing needs to protect. Given the law enforcement nature of counter-drug operations and the CCG’s success in participating in North Pacific fisheries patrols, the CCG is a more logical choice than the PLAN for the establishment of an initial maritime presence in the Eastern Pacific.33 Obviously, this could grow into something more robust that includes a PLAN component in the future, just as the PLAN’s presence in the Gulf of Aden has led to the establishment of China’s first overseas military facility in Djibouti.34
It is something of a cliché to state that the fleet follows the flag. However, there is truth in that statement, and at some point, China’s fleet is likely to follow its flag to the Western Hemisphere in a way that is more substantive than the occasional exercise or goodwill cruise. This eventuality needs to be considered along with the possibility that when China’s fleet arrives on station, it will be led by the white hulls of the CCG as opposed to the gray hulls of the PLAN.
Mr. Daniel J. Kostecka is a senior civilian analyst for the U.S. Navy. Mr. Kostecka has worked for the Navy for 16 years and has worked for the Department of Defense and the Government Accountability Office. He was an active-duty Air Force officer for ten years and recently retired from the Air Force Reserves with the rank of lieutenant colonel and over 27 total years of commissioned service. Mr. Kostecka has a bachelor of science in mathematics from The Ohio State University, a master of liberal arts in military and diplomatic history from Harvard University, a master of arts in national security policy from the Patterson School of Diplomacy and International Commerce at the University of Kentucky, and a Master of Science in strategic intelligence from National Intelligence University. Mr. Kostecka is also a graduate of Squadron Officer School, the Air Command and Staff College, the Air War College, and Joint Forces Staff College. The views expressed in this article are those of the author and do not necessarily reflect the views of the Department of the Navy or the Department of Defense.
References
[1] Mark Godrey, “China patrols target IUU in North Pacific,” Seafood Source, 28 August 2019, https://www.seafoodsource.com/.
[2] “Chinese Cocaine Haul Shows Growing Drug Problem in Region,” South China Morning Post, 27 June 2018, https://www.scmp.com/.
[3] Ronald O’Rourke, China Naval Modernization: Implications for U.S. Navy Capabilities – Background and Issues for Congress. Washington, DC: Congressional Research Service, 3 August 2021, https://crsreports.congress.gov.
[4] Dave Makichuk, “China’s Naval Fleet Delivers Loud Message to US,” Asia Times, 27 February 2020, https://asiatimes.com and Office of the Secretary of Defense, Military and Security Developments Involving the People’s Republic of China 2019: Annual Report to Congress. Washington, DC: OSD, May 2019, https://www.defense.gov.
[5] Andrew S. Erickson, “Surging Second Sea Force – China’s Maritime Law Enforcement Forces,” Naval War College Review 72, no. 2. Spring 2019, pp. 1-25. https://digital-commons.usnwc.edu/nwc-review/vol72/iss2/4/.
[6] Office of the Secretary of Defense, Military and Security Developments Involving the People’s Republic of China 2019: Annual Report to Congress. Washington, DC: OSD, May 2019, https://www.defense.gov.
[7] Richard Heydarian, “US Coast Guard Churns South China Sea Tensions,” Asia Times, 30 October 2019, https://asiatimes.com/.
[8] Andrew S. Erickson, “Surging Second Sea Force – China’s Maritime Law Enforcement Forces,” Naval War College Review 72, no. 2. Spring 2019, pp. 1-25. https://digital-commons.usnwc.edu/nwc-review/vol72/iss2/4/.
[9] Mark Godrey, China patrols target IUU in North Pacific, Seafood Source, 28 August 2019, https://www.seafoodsource.com/.
[10] LT Katie Braynard, “Interdiction on the High Seas,” Coast Guard Compass, 12 June 2014, https://coastguard.dodlive.mil/.
[11] “North Pacific Fisheries Commission,” Food and Agricultural Organization of the United Nations, FAO 2020, http://www.fao.org/.
[12] Jesse Johnson, “Chinese and US Coast Guards Perform Joint Operations – Rare Bright Spot in Sino-American Relations,” Japan Times, August 26 2016, https://www.japantimes.co.jp/ and “US and China Coast Guards Interdict Vessel for Illegally Fishing on the High Seas,” Coast Guard News, 3 June 2014, https://coastguardnews.com/.
[13] UN Security Council Resolution 2125, 18 November 2013, http://www.securitycouncilreport.org/ and Office of Naval Intelligence, The PLA Navy – New Capabilities and Missions for the 21st Century. Washington, DC: ONI, December 2015, https://ww.oni.navy.mil and “China Evacuates Citizens and Foreigners from Aden,” BBC News, 3 April 2015, https://www.bbc.com/ and Khushbu Shah and Jason Hanna, “Chinese Ship Arrives to Help in Removal of Syrian Chemical Weapons Materials,” CNN, 8 January 2014, https://www.cnn.com/.
[14] Office of Naval Intelligence, The PLA Navy – New Capabilities and Missions for the 21st Century. Washington, DC: ONI, December 2015, https://ww.oni.navy.mil and Michael Field, “Chinese Hospital Ship Cruises the South Pacific to Spread Influence,” Nikkei Asian Review, 9 August 2018, https://asia.nikkei.com/.
[15] UN Security Council Resolution 2482, 19 July 2019, https://undocs.org/S/RES/2482(2019).
[16] Pepe Zhang, “Belt and Road in Latin America – a Regional Game Changer?” Atlantic Council, 8 October 2019, https://www.atlanticcouncil.org/.
[17] “US $168 Million Cocaine Haul Sparks Fears South Korea Becoming Gateway to China and Rest of Asia,” South China Morning Post, 18 December 2018, https://www.scmp.com/.
[18] “Cocaine Prices,” Narcotics News, 2020, http://www.narcoticnews.com/.
[19] “Chinese Cocaine Haul Shows Growing Drug Problem in Region,” South China Morning Post, 27 June 2018, https://www.scmp.com/.
[20] Jesse Johnson, “Chinese and US Coast Guards Perform Joint Operations – Rare Bright Spot in Sino-American Relations,” Japan Times, August 26 2016, https://www.japantimes.co.jp/ and in 2009 the author served a four month rotation as a reservist at Headquarters US Central Command and the view there at the time regarding the deployment of a PLAN task force to the Gulf of Aden was positive and appreciated due to the need for additional assets to combat pirates in the Gulf of Aden.
[21] “Coast Guard National Security Cutter Departs for Eastern Pacific Counter-Narcotic Patrol,” Coast Guard News, 31 March 2020, https://content.govdelivery.com/ and Pepe Zhang, “Belt and Road in Latin America – a Regional Game Changer?” Atlantic Council, 8 October 2019, https://www.atlanticcouncil.org/.
[22] Andrew S. Erickson, “Surging Second Sea Force – China’s Maritime Law Enforcement Forces,” Naval War College Review 72, no. 2. Spring 2019, pp. 1-25 and “Oregon-Based Coast Guard Cutter Returns Home After 65-Day Counternarcotic Patrol,” Coast Guard News, 23 April 2020, https://content.govdelivery.com/.
[23] William H. Thiesen, “The Long Blue Line – LEDETs,” Coast Guard Compass, 5 July 2018, https://coastguard.dodlive.mil/.
[24] Robbie Gramer and Keith Johnson, “Tillerson Praises Monroe Doctrine, Warns Latin America of ‘Imperial’ Chinese Ambitions,” Foreign Policy, 2 February 2018, https://foreignpolicy.com/.
[25] Mark Godrey, “Argentine Coast Guard Opens Fire on Chinese Fishing Vessel,” Seafood Source, 4 March 2019, https://www.seafoodsource.com/.
[26] Gidget Fuentes, “Pacific Deputy – Coast Guard a Continuing ‘Force Multiplier’ with Navy in Global Missions,” US Naval Institute, 27 August 2019, https://news.usni.org/.
[27] Caitlan Doornbos, “As One Cutter Departs, Another Deploys to Maintain Coast Guard Presence in Western Pacific,” Stars and Stripes, 14 June 2019, https://www.stripes.com/.
[28] Dan Lamothe, “To Help Counter China – US Turns to the Coast Guard,” Washington Post, 20 April 2019, https://www.washingtonpost.com/.
[29] Dzirhan Mahadzir, “Schultz – Coast Guard Expanding Western Pacific Operations,” US Naval Institute, 7 July 2019, https://news.usni.org/.
[30] Dzirhan Mahadzir, “Schultz – Coast Guard Expanding Western Pacific Operations,” US Naval Institute, 7 July 2019, https://news.usni.org/.
[31] Caitlan Doornbos, “As One Cutter Departs, Another Deploys to Maintain Coast Guard Presence in Western Pacific,” Stars and Stripes, 14 June 2019, https://www.stripes.com/.
[32] Rear Admiral Michael McDevitt, “Becoming a Great Maritime Power – a Chinese Dream,” Center For Naval Analysis, June 2016, https://www.cna.org/.
[33] Jesse Johnson, “Chinese and US Coast Guards Perform Joint Operations – Rare Bright Spot in Sino-American Relations,” Japan Times, August 26 2016, https://www.japantimes.co.jp/.
[34] Tyler Headley, “China’s Djibouti Base, a One Year Update,” The Diplomat, 4 December 2018, https://thediplomat.com/.
Featured Image: The crew from the U.S. Coast Guard Cutter Boutwell trains with the China coast guard on August 18, 2007. (Coast Guard photo by Petty Officer Jonathan R. Cilley)
While I always appreciate sourcing, I was hoping there would be more current information available.
Having participated in some of the above-mentioned evolutions, I can say that rival countries taking part in joint operations do not always have those operations’ stated mission as their primary short-term or long-term objective.