Analysis related to USNORTHCOM
Join our DC chapter for its June informal meet-up/happy hour. Member Brian Slattery will lead a discussion on the Index of U.S. Military Strength. We hope you’ll drop by for drinks and discussions with friends old and new.
Time: Tuesday, 23 June 5:30-8:30pm
Place: Bistro d’OC (Upstairs)
518 10th St NW
Washington, DC
All are welcome – RSVPs not required, but appreciated: [email protected]
Editor’s Note: The U.S. Navy, U.S. Coast Guard, and U.S. Marine Corps today released the revised maritime strategy, unveiling it at an event at CSIS. You can download it here, and access a fact sheet on it here.
By Joshua Tallis
A Cooperative Strategy Reboot
A Cooperative Strategy for 21st Century Seapower: Forward, Engaged, Ready (CS21R) is different from its 2007 predecessor in both tone and content in a number of critical ways. Some of the changes are merely those of diction, others those of new threats and previously ignored regions. Yet, all of these changes suggest an important evolution in the scope and attitude of the United States’ maritime services: the Navy, Marine Corps, and Coast Guard.
Parsing the Tone
The Tone of CS21R is set early on as the document’s authors seek to explain why an adapted strategy has become necessary. First and foremost on this list is the budget, a note that mirrors the tenor of more recent strategy documents (see the 2014 QDR, for example), but is absent from the original 2007 version. Before the end even of the preface, written by Secretary of the Navy Ray Mabus, the document makes reference to fiscal constraints. And this theme remains an undercurrent throughout the white paper.
In addition to budget, the document is quick to remark on the increasing complexity of the world’s dynamic threat environment. This too is found in Secretary Mabus’ preface, and continues through the foreword (signed by all three maritime service chiefs) and onward into the strategy itself. And again in this way CS21R sets itself apart from its predecessor. As the Chief of Naval Operation noted at the launch event at CSIS, the 2007 document was the product of a vastly different environment. Multiple conventional carriers were still afloat, the United States was heavily engaged on the ground in both Iraq and Afghanistan, and cyber was not yet the buzzword it has become in policy circles. In many ways the original document was a product of a wartime environment, one broad in scope but nevertheless clear in direction and purpose. The revised strategy favors the term complex where the earlier document uses evolved, a small change in diction that perhaps suggests a greater uncertainty in the future responsibilities of the maritime services. Yet, tone only suggests so much. The document, which is slightly longer than the original, provides greater content and thus a more sophisticated representation of its purpose than its predecessor.
Analyzing the Strategy
There are myriad ways one could parse the new document with respect to the old. It is vastly more robust in its attention to the cyber domain (which garners only side mentions in the 2007 version). It also pays far greater attention to Africa than the 2007 paper, which only mentions the continent once by name. In fact the revised version goes into far greater depth on all geographic regions, with a section (II) detailing each specifically. One unique change here is in a shift from the term ‘Asia-Pacific’ to a vastly more expansive ‘Indo-Asia-Pacific,’ defined as “spanning from the West Coast of the United States to the eastern coast of Africa.” (CS21R 3) This of course widely expands a geography the Navy in particular has had a growing interest in, though how it influences the rebalance to the Asia-Pacific is unclear. China still features heavily in the document, and the service chiefs all noted that the country weighed on their minds as the document evolved. It is likely in response to China, as well as threats posed by Russia and Iran, that induced one of the greatest changes to the document, the addition of “All Domain Access” as a pillar of seapower alongside the more traditional columns of deterrence, sea control, power projection, and maritime security. All domain access is defined as the “ability to project military force in contested areas with sufficient freedom of action to operate effectively.” (CS21R 19) This of course brings to mind anti-access/area denial (A2/AD) challenges posed chiefly by China, though the document indicates that this principle extends even into the cyber domain and the electromagnetic spectrum. (CS21R 21)
None of these changes will go unnoticed. Greater geographic specificity, the expansion of interest in securing the cyber realm, and the inclusion of a fifth pillar in the sea services’ conception of what seapower means are all ‘above the fold’ revisions to the original strategy. What may go unnoticed to those focused on traditional geopolitics is the documents marked increase in interest in maritime security. Human trafficking makes its debut in the revised document, while greater significance is given to those non-state threats mentioned in the 2007 white paper. The first section of the strategy detailing geopolitical changes since the publication of the first document is peppered with references not only to extremism and terrorism but also to transnational organized crime (TOC), the growing significance of population expansion in the littorals, and the threats posed by under-governed zones ashore.
As to be expected, each of the service chiefs highlighted certain portions of the cooperative strategy over others. When asked against what greatest threats the updated strategy was intended to prioritize, the Chief of Naval Operations pointed towards North Korea, Iran, Russia, cyber, and a host of non-state actors (mostly terror organizations such as Isis and Boko Haram). The Commandant of the Marine Corps also noted violent extremism, but leaned heavily on conventional threats such as Russia, China, North Korea and nuclear proliferation. The Commandant of the Coast Guard, however, highlighted throughout the launch event the primacy of a range of maritime security threats emphasized in CS21R. Chief among them was transitional crime, which the admiral estimates is worth $750 billion annually. The commandant also repeated the Coast Guard’s unique placement as a law enforcement operator with dozens of mutual legal assistance treaties negotiated across the world enabling easier Coast Guard access to littorals where other maritime forces may have operational restrictions.
International partners, most of whose navies are closer in scope and composition to the U.S. Coast Guard than the U.S. Navy, are a related component to this energized perspective on maritime security. The document makes continued reference to the need for partnerships, and Admiral Greenert noted at the launch that the document was already in the process of being translated to allow for greater dialogue with international partners. In West Africa, the Caribbean, Central America, the Middle East, and Southeast Asia in particular, many of these partners’ primary concerns are of matters of maritime security, terrorism, and organized crime. The Coast Guard’s partner programs in the South China Sea and its counter-narcotics mission in the Caribbean and Central America were highlighted in the event as examples of maritime security cooperation outside of the traditional navy-to-navy framework.
Finally, the document goes into greater detail than its predecessor with respect to implementation. Section IV on force design included components on force readiness and composition, personnel, strategic development, and capabilities. At the launch, Admiral Greenert noted that the strategy captures how the navy is organizing, equipping, and training its sailors in new ways. General Dunford made reference to personnel and training shifts to precipitate in the coming years, guided in part by CS21R, and Admiral Zukunft emphasized that the Coast Guard was on the threshold of the largest recapitalization effort in the service’s history.
Conclusion
In many of the most significant ways, A Cooperative Strategy for 21st Century Seapower: Forward, Engaged, Ready is not so much a revision but a replacement of its 2007 incarnation. Longer, more detailed, more expansive, and more inclusive, the revised document builds heartily on the framework established eight years ago, the result being a document distinctly different in both tone and content. While great attention will no doubt be paid to many of these differences, equally important if perhaps subtler changes were made regarding how the maritime services face non-state issues, including the illicit traffic in people, narcotics, and weapons. As CS21R continues the tropes increasingly familiar in strategy documents—budget uncertainty, evolving threat complexity, a shift towards the Asia-Pacific—it brings the maritime services into a more nuanced, if perhaps ambitious, vision of what seapower will mean in the future.
About the Author
Since 2011 Joshua has served as the manager for research and analysis at Security Management International (SMI), an intelligence services provider in Washington, DC. Josh has co-authored several articles in the Journal of Counterterrorism and Homeland Security International with SMI associates. Since 2013 Joshua has also been a frequent contributor to spaceflightinsider.com, a member of The Spaceflight Group’s community of aerospace news websites. He is a PhD candidate at the University of St. Andrews’ Centre for the Study of Terrorism and Political Violence, where he researches maritime security. Joshua is a Summa Cum Laude graduate of The George Washington University where he received a BA in Middle East Studies from the Elliott School of International Affairs.
On Tuesday Dr. Ashton Carter begins his tenure as Secretary of Defense. While many observers regard Dr. Carter as a caretaker nominee tasked to mildly manage the Department of Defense (DOD) during the President’s last two years of office, the experienced and capable Dr. Carter has the potential to do much more. His strategy as Secretary should have three priorities.
First, Dr. Carter must develop new concepts and field new capabilities necessary to assure the ability of the United States to deter and defeat aggression, in particular by China. While the U.S. military was largely focused on Iraq and Afghanistan, China developed formidable Anti-Access/Area Denial (A2/AD) capabilities that threaten U.S. allies and partners in the vital Asia-Pacific region and complicate U.S. operations. While multiple states, including Russia and Iran, are fielding A2/AD capabilities, and while A2/AD capabilities may continue to proliferate globally, the ability of the United States to deter and defeat Chinese aggression serves as a bellwether for U.S. capabilities worldwide.
In response, Dr. Carter should articulate to the public that China will serve as DOD’s pacing threat and that DOD’s recently unveiled Third Offset Strategy will seek to counter Chinese capability, just as the First and Second Offset Strategies countered Soviet capabilities. While many of the activities of the Third Offset Strategy should be classified, two key indices can serve as palpable indicators of progress. First, whether funding is reapportioned from the Army to the departments most relevant in a conflict with China: the Air Force and the Navy. Dr. Carter will have the Fiscal Year 2017 budget to do so. Secondly, within the Services, DOD must adequately fund and accelerate programs relevant in the most operationally stressing scenarios involving China. In many cases, these are crucial capabilities that the Services have been slow to develop for a variety of reasons. For instance, for the Navy, the ability to rapidly reload weapons while underway at sea; for the Air Force, a credible effort to harden and disperse airfields throughout the Western and Central Pacific; and, for the Army, the development of conventional intermediate-range offensive missiles similar to those currently fielded by China (and possibly Russia).
Dr. Carter’s second priority should be advocating for the nation to return defense spending to pre-sequestration levels. Former Secretary of Defense Leon Panetta warned that allowing sequestration to happen would be like, “Shooting ourselves in the head.” The Department’s own Quadrennial Defense Review warned that, under sequestration-level cuts, risks to our nation “would grow significantly.” After these cuts took place, DOD slashed readiness and force structure in order to preserve a modicum of modernization funding. This has resulted in an increasingly hollow force incapable of appropriately facing the nation’s increased scale of threats in Eastern Europe, the Middle East, and the Western Pacific. While increased funding for DOD alone is insufficient, it is perhaps Dr. Carter’s most challenging priority given a seeming lack of interest and will in Congress and the White House.
His third priority should be ensuring DOD funds are spent efficiently. The dramatic rise in DOD overhead costs, such as pay, benefits, and bases, is crowding out funding available for warfighting. This is producing a military that is better compensated than ever before, but dangerously unprepared for a major war. Dr. Carter must convince the President and Congress to enact significant military compensation reform and a new round of Base Realignment and Closure (BRAC). The opening of hearings on the congressionally-mandated Commission on Military Compensation and Retirement Modernization represents a bipartisan opportunity for Congress to take action against spiraling personnel costs. As with a new round of BRAC, Congress will need to demonstrate bipartisan leadership to overcome pressure from interest groups, allay the concerns of current and retired military members, and enact these essential reforms.
The security challenges facing our nation are numerous and unrelenting, not the least of which is continued combat in Afghanistan. With only two years in office, it is unlikely Dr. Carter will be able to reform the entire defense enterprise and address every threat. However, by focusing on these three priorities, he can surprise skeptics and set the DOD on the right course to appropriately providing for our nation’s defense.
Timothy A. Walton is a principal of Alios Consulting Group, a Washington, DC-based defense and business strategy consultancy. He specializes in Asia-Pacific security dynamics.
On June 26th, one of the world’s largest and most significant naval exercises began in and around Hawaii. Rim of the Pacific (RIMPAC) is a biannual event led by the United States Navy and usually involves maritime forces from more than n Pacific countries, including Canada. Although the exercises have been held consistently since 1971, this year’s edition promises to have an unprecedented impact on military and strategic affairs in the Asia-Pacific region.
Of particular note, 2014 marks the first time China participates in RIMPAC. Previous editions have involved regional neighbours, like Japan and South Korea, but curiously excluded the People’s Liberation Army Navy (PLAN). Early this year, as planning was underway for the upcoming edition of RIMPAC, the US extended an invitation to China for the first time. However, the fallout from the Shangri-La Dialogue in Singapore on May 31-June 1 left considerable doubt that China would accept the invitation. It therefore came as a surprise when China formally accepted the invitation one week after the heated debate in Singapore. In a move that could help reduce regional tensions, four PLAN vessels have participated in the exercise, serving alongside ships from other participating countries, like Japan, the Philippines, and Canada.
This is also the first RIMPAC exercise for the small Southeast Asian state of Brunei. The Royal Brunei Navy is a rather small force, especially in comparison to the impressive naval might of nearby Singapore, but it has contributed two off-shore patrol vessels. These smaller ships, the KDB Darussalam and KDB Darulaman, are also Brunei’s newest acquisitions and so RIMPAC is viewed as an opportunity to test out their capabilities in simulations of large-scale maritime combat operations.
With Brunei, participation in RIMPAC increases among Association of Southeast Asian Nations (ASEAN) members to six out of ten, indicating a willingness by the bloc to become more actively involved in Pacific security. The four member states not participating in 2014 either lack the capacity to participate, such as landlocked Laos, or they were not invited to participate, such as the despotic regime in Burma.
While China and Brunei are in this year, Russia is out. In 2012, Russian maritime forces joined RIMPAC for the first time. Three vessels took part, led by the destroyer RFS Panteleyev, which had previously served alongside NATO forces as part of Operation Ocean Shield. But with tensions rising over Russia’s actions in Ukraine, no invitation was extended to join RIMPAC in 2014.
In May 2014, Russia and China held a large-scale joint naval exercise of their own in the East China Sea, but Russia has otherwise been left isolated in Pacific military affairs since the Crimean crisis. Aside from supplying Vietnam with new submarines and other vessels, Russia has scant opportunities to build security ties with the countries of Southeast Asia, stalling any effort by Vladimir Putin to pivot eastward. This suggests that any ‘soft power’ influence Russia may have had is now in severe decline, with many governments in the region reluctant to trust or engage with Putin.
RIMPAC 2014 is also a significant opportunity for Canada to demonstrate its capacity to become a major player in the Pacific. This has clearly not been lost on Canadian defence officials as there is a considerably increased contribution from Canada as compared to 2012, despite the fact that many Royal Canadian Navy vessels are either undergoing repairs or are being retrofitted. This time, Canada’s fleet is led by the HMCS Calgary, a Halifax-class frigate, joined by a Victoria-class submarine and two Kingston-class patrol vessels. As RIMPAC is a combined arms exercise, Canada has also sent an infantry company from the Third Battalion, Princess Patricia’s Canadian Light Infantry to act as marines, while a Royal Canadian Air Force component will be deployed that includes eight CF-18 Hornets.
By involving all three elements of the Canadian Forces, it will be possible to demonstrate Canada’s ability to participate meaningfully in a multilateral intervention in the Pacific. As tensions between countries in the Asia-Pacific region are enflamed, discussion surrounding the potential for a Pacific equivalent to NATO occasionally surfaces. By showing leadership through RIMPAC and developing interoperability with countries ranging from Brunei to China, Canada secures a place at the table for itself in case those discussions ever turn serious.
Paul Pryce is a Research Analyst at the NATO Council of Canada and CIMSEC’s Director of Social Media. With degrees in political science from universities in both Canada and Estonia, he has previously worked as a Research Fellow at the OSCE Parliamentary Assembly and an Associate Fellow at the Latvian Institute of International Affairs. His research interests are diverse and include maritime security, NATO affairs, and African regional integration.
Disclaimer:
Any views or opinions expressed in this article are solely those of the authors and the news agencies and do not necessarily represent those of the NATO Council of Canada. This article is published for information purposes only.
This post appeared at the NATO Council of Canada in its original form and was cross-posted by permission.
