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Future War

Flight III – A Piece in The Surface Combatant Puzzle

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A Lockheed Martin AMDR conceptual depiction.
A conceptual depiction of the Flight III and AMDR.

For a distant observer, commenting on alternatives to the DDG Flight III would be difficult without the well written documents by Congressional Research Service writer Ronald O’Rourke.  His Navy DDG-51 and DDG-1000 Destroyer Programs: Background and Issues for Congress lists most of the program’s considered possible alternatives, reducing the scope of the issue to selecting evaluation criteria and identifying a specific solution.  Besides the considered options there is also a recommendation that could broaden the scope of the discussion:

Conduct a thorough [Analysis of Alternatives (AOA)] in accordance with DOD acquisition guidance for its future surface combatant program to include:
(c) implications of the ability of the preferred ship to accommodate new technologies on future capabilities to determine the most suitable ship to carry [The Air and Missile Defense Radar (AMDR)] and meet near-term [Integrated Air and Missile Defense (IAMD)] requirements and provide a path to far-term capabilities;
(d) implications on future fleet composition;

With the gradual disappearance of frigates from the Navy’s service, the truncation of DDG-1000 to three units, and LCS under critics’ fire, Arleigh Burke is slowly becoming the sole “can-do-all” class of surface combatant. There is an interesting critique of a homogenous ship class force structure related to the history of the Canadian Navy, with the judgment rendered thus:

“Force structure planners should be aware that the history of the RCN shows that naval flexibility cannot be derived from a uniform fleet.”

The author, Kenneth Hansen further elaborates his thesis in another article, concluding that  “If the strategic context is complicated, changing, or uncertain, a diversified fleet structure is required.” Armed with such knowledge, let’s step back and reconsider Navy assumptions for its old Future Surface Combatant Program. This envisioned:
• – A DD(X) destroyer for the precision long-range strike and naval gunfire missions;
• – A CG(X) cruiser for the air defense and ballistic missile defense missions; and
• – A smaller combatant called the Littoral Combat Ship (LCS) to counter submarines, small surface attack craft (boat swarms), and mines in heavily contested littoral (near-shore) areas.

Many things have caused the cruiser as originally conceived to become unaffordable, the destroyer (DDG-1000) has grown to the cruiser’s price and size, and LCS is suffering badly from a lack of operable modules. But the concept itself is not dead. The original requirements, changed under the pressures of the economy and a drive for efficiency, asked for an AMDR with a relative capability described as “SPY+30.”  The new solution for DDG Flight III has a relative capability of “SPY +15”, called in a GAO report “marginally adequate“. At the same time Ronald O’Rourke reports states:

As part of the [Maritime Air and Missile Defense of Joint Forces (MAMDJF)] AOA, the Navy identified that DDG 1000 can accommodate a SPY+25 radar. As part of a technical submission to the Navy, BIW, the lead designer for DDG 1000 also identified a possible design for a 21-foot radar on DDG 1000. The Navy did not include a variant with this size radar in the Radar/Hull Study.

Fancy a frigate?
                          Fancy a frigate?

Another conclusion from MAMDJF AOA study was that a smaller number of higher performance ships is preferable to networking less-capable but more numerous ships. On the other hand such a former approach deepens the deficit of cruiser/destroyers. Is there a way out of this trap? As controversial as it seems, it is theoretically possible to reintroduce a hi-lo mix into the surface fleet, consisting of cruisers and frigates. The aim would be to acquire one cruiser and two frigates for a price of two DDG Flight III. The result would be a Navy with a high-capability ship focused on IAMD undistracted by other tasks, such as ASW, with dedicated escorts in numbers allowing it to close the gap in surface combatants hulls. The fleet structure could therefore consist of:

1. Cruisers with the IAMD mission. If DDG-1000 fills this role it can retain its striking capability. Its towed sonar would be eventually cancelled and ASW mission limited to self-defense and shorter ranges. As an intermediate step toward future capabilities, an extant volume search radar could be retrofitted to the three hulls under construction, allowing more time for BMD software development and integration. This cruiser would represent a scaled-down version of CG(X).

2. Frigates would fill the escort mission focused on ASW and anti-air local area defense. For this purpose, a low-end Aegis could be used, possibly combined with a future, economy version of SPY-3 radar. Frigates should resemble the Norwegian Fridtjof Nansen more than the Spanish Alvaro de Bazan-class with a the difference being a higher number of VLS cells. This class promises to be an affordable workhorse of the fleet, doubtful for the DDG Flight III, which looks more and more strategic.

3. DDG-51 and its follow-on class, which opens a discussion about the word “destroyer” in the U.S. Navy. In order to avoid a “can-do-it-all” syndrome, the follow-on class (a differently conceived Flight III perhaps) could specialize in strike and anti-air area defense capabilities without BMD, and limited ASW capabilities similar to the aforementioned cruisers. In other words, this class would represent a return to a more realistic representation of DD(X) idea. A flexible class would be a good companion both to carriers, supporting the strike mission, and to the corvettes below, providing air defense. It is also neutral towards follow-on decisions and permits the class to free up the extra room for needed growth margins.

4. Corvettes, with a mission to “clear littoral clutter” and focus on ASW, ASuW, MCM, and patrol tasks.

Such a mix would also open the path for new technologies like an all-electric drive, a Total Ship Computing Environment (TSCE), or Advanced Gun System (AGS) to develop in the Fleet. New technologies need enough numbers to evolve into something practical, otherwise they become unwanted expensive “gold-plating”. This four-tier structure also offers flexibility for forming surface task forces tailored to changing situations.

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

Future War

Whither The Flight III

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081021-N-9928E-054Back in March our readers voted on topics they’d like us to cover for a week of analysis. The winner was “Alternatives to the U.S. Navy’s DDG-51 Flight III”. Alas not many have felt comfortable venturing outside their expertise comfort zones to weigh in on the issue. Those few brave writers who did accept the challenge have an interesting week for you and hopefully some food for thought.

The Arleigh Burke-class (DDG-51) first entered service in 1991 as the first “Aegis destroyer” – a multi-role combatant but notably synonymous with its anti-air warfare (AAW) radar. In 1998 the ship class morphed to the Flight II with USS Mahan (DDG-72), and has since DDG-79 used evolving variations of the USS Oscar Austin Flight IIA design. With the looming retirement of the U.S. cruisers and increasing AAW and ballistic missile defense (BMD) requirements, the U.S. Navy began planning for a tentatively named CG(X) cruiser ship class to fill the role (or integrated air and missile defense (IAMD) gap) with “a new and more capable radar called the Air and Missile Defense Radar (AMDR).” However, in 2010 it opted for the DDG-51 Flight III with a “smaller and less powerful [AMDR] than the one envisaged for the CG(X)” as it was deemed cheaper to continue building on the DDG-51 frame.

As part of his coverage of the Navy’s FY13 budget submission, Ron O’Rourke at the Congressional Research Service (CRS) in late March detailed in a very readable report the Navy’s intended program of record. As he states:

“The Navy wants to begin procuring a new version of the DDG-51 design, called the Flight III design, starting with the second of the two ships scheduled for procurement in FY2016. The two DDG-51s scheduled for procurement in FY2017 are also to be of the Flight III design… The Navy for FY2013 is requesting congressional approval to use a multiyear procurement (MYP) arrangement for the nine DDG-51s scheduled for procurement in FY2013-FY2017.”

Some of the issues outlined in the CRS report (pg 18) include:

  • Whether there is an adequate analytical basis for procuring Flight III DDG-51s in lieu of the previously planned CG(X) cruiser
  • Whether the Flight III DDG-51 would have sufficient air and missile capability to adequately perform future air and missile defense missions
  • Cost, schedule, and technical risk in the Flight III DDG-51 program
  • Whether the Flight III DDG-51 design would have sufficient growth margin for a projected 35- or 40-year service life

To these unresolved points follow several more foundational questions:

  • Is the AMDR the right radar to fill the U.S. Navy’s future IAMD needs?
  • Is the DDG-51 the right shipframe to house the future IAMD radar, whether or not the AMDR? (in essence a roll-up of Ron’s 2nd and 4th points above). This question is especially salient in light of the reliance on the Arleigh Burke class to fill a multitude of roles beyond IAMD.
  • Is there another way to do AAW and/or BMD in the time frame for the procurement and service life of the Flight III?
  • Is there a way to divest the Flight IIIs of some of the other mission areas that they perform? How could this alter the distribution of ship numbers?
  • Is there are a way to change the assumptions the IAMD requirements are based on?

These are the questions we don’t expect to answer conclusively, but to use as starting points to offer possibilities. For another good take on the issues, check out friend-of-the-blog Bryan McGrath’s article at USNI News.

Strategic Outlook

Indonesia’s Strategic Flexibility

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This post was cross-posted by permission from The Security Scholar and is republished with permission. It may be read in its original form here.

By Natalie Sambhi

Brad Nelson has a neat overview in the Jakarta Globe earlier this month of Indonesia’s strategic options vis-à-vis China and the U.S. Enabled by what he calls ‘strategic flexibility’ (which I think is actually an extension of Indonesia’s so-called ‘dynamic equilibrium’ approach), Indonesia can stay neutral, pick China or the U.S., be a mediator/conduit or play the big kids off against one another.

Natuna Islands
                            The disputed Natuna Islands

Nelson rightly identifies Indonesia as attempting to pursue a ‘conduit’-type role. In fact, to be an effective conduit and exert real influence on the U.S. and China, Nelson prescribes Indonesia build goodwill as a conflict mediator and regional problem-solver.

In theory, it’s a sensible option but I have my misgivings about how it’s presented in relatively unproblematic terms. I say this because I’m reminded of comments made at a recent workshop by a participant challenging Indonesia’s image as a neutral party in South China Sea disputes. They asked, how could Indonesia be a legitimate mediator if it refuses mediation itself on issues such as the Natuna Islands?

Not being an expert on Indonesia’s territorial disputes, I dug up some of I Made Andi Arsana’s writing to work out how much of an issue Natuna is. Arsana’s overview of the history around the Natuna Island EEZ reveals a complicated picture (excerpt):

On the other hand, China seems to have a different view. In 2010, for example, Chinese fishermen were caught fishing in waters off the Natuna Islands, which Indonesia unilaterally considers as part of its EEZ. When patrolling Indonesian officers approached to arrest the vessels, a large Chinese vessel arrived and demanded that the vessels be released.

This gives the impression that the fishing vessels were guarded by a large vessel known as the “Chinese fishery administration vessel”. It can be inferred that China has extended its maritime claim up to the area that Indonesia believes to be its.

The aforementioned incident implies that Indonesia is not totally free from the SCS conflict.

Nelson approach isn’t incorrect but it requires more detail than its current form to be a true representation of Indonesia’s strategic options. It might be strengthened by addressing questions about China–Indonesia strategic relations, found in other writings of Ristian Atriandi Supriyanto and Greta Nabbs-Keller, to name a few. With reports earlier this year of the Indonesian navy on alert for possible Chinese claims to Natuna waters, it seems like this isn’t over yet.

Natalie Sambhi is an analyst at the Australian Strategic Policy Institute, editor of The Strategist and co-editor of Security Scholar. She is also a Hedley Bull Scholar and graduate of the Australian National University.

Capability Analysis, Future War, Strategic Outlook

The Vanishing Amphibious Fleet: Why Our Next Inchon May Begin off the Deck of a Container Ship

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Christopher Barber is a Marine Corps Reserve Captain mobilized in the national capital region. While on active duty, he served in Helmand, Afghanistan as an Intelligence Officer and Scout Sniper Platoon Commander. He is a 2008 graduate of the United States Merchant Marine Academy and a USCG licensed deck officer.

A PIVOT, BUT WITH WHAT?

American strategic thought has been dominated by the recently self-proclaimed “pivot” to the Pacific and Asia. A student of history, or simple geography, can easily demonstrate that conflict in the Pacific has always, and will always, be a primarily naval endeavor. The same research will reveal that even with a naval focus, any future conflicts are likely to involve putting troops ashore in some fashion. However, seaborne basing, forcible entry, and general contingency planning for amphibious operations are at risk in our military’s current force structure.

Sheer numbers show that the capability to move and fight amphibiously is at a relative historical low point. The US Navy does not indicate in its ship building priorities that this unsettling fact is likely to change. Unorthodox options such as using Maritime Preposition Force ships, auxiliary ships (MSC), or contracted merchant ships are not desirable for operational planners at this time due to the legal and political problems of sending these ships into harm’s way. In light of our strategic desires and growing delta from our amphibious capabilities, the Navy/Marine Corps teams should reexamine these means to supplement capability until reason can guide (along with fiscal ability) necessary, capable amphibious forces.

WHAT HAPPENED TO THE GATOR NAVY?

The US Navy possesses its lowest number in history of amphibious vessels. There is currently questionable accounting concerning the ability to put an entire MEB (Marine Expeditionary Brigade) to sea. Latest estimates place the required ships to conduct forcible entry options with a MEB, deemed necessary for major combat operations, at 33.  Realistically, that number leaves no real reserve and more worrying is the open secret that we will not maintain this force level past 2015. MEUs and ARGs are staying out longer, and being split in order to fulfill operational needs. The 15th MEU, which captured Somali pirates in September 2010, was split conducting counter piracy while simultaneously supporting Afghanistan combat operations and theater reserve.

While such split operations are within the kit bag of the MEU, such practices dilute the nature of the ready force that is forward and concentrated. Current naval planning does not indicate these trends will reverse. In the near term, FY13 budgeted shipbuilding plans for the procurement of 10 combatant vessels, none of which are designed as amphibious troop carrying vessels.

Longer-term outlooks are no more promising, with the 30-year shipbuilding plan designating amphibious ships to remain the smallest portion of the surface ship layout. These trends indicate that while we point to a pivot in the Pacific, a lack of focus on the real possibility of amphibious operations exists in the Navy.  Amphibious operations would only make up a portion of the large pie of commitments facing the Pacific Fleet. Within the large spectrum of possible kinetic or non-kinetic operations in the Pacific, it can be predicted that any amphibious operation would be a decisive moment strategically and the planning should be weighted accordingly.

IN THE LACK OF CLEAR ORDERS AND GUIDANCE, ACT ACCORDINGLY

Viewed through the lens of history (Normandy, Inchon, or Guadalcanal) it is difficult to find any amphibious operations that did not mark a dramatic turning point in a campaign or war.  If it is then self-evident that such an event would be so strategically critical, why does the current plan to build and maintain such a force seem akin to a family choosing to forgo insurance while deciding to move to earthquake prone area? The prime stakeholder in any amphibious operation, the Marine Corps, cannot dictate the procurement of other services, but it should consider alternative courses of action to ensure its capabilities remain viable.

It is important to remember that any alternatives to procuring and maintaining a robust combatant amphibious fleet should be only temporary. To rely on merchant shipping or other means that are not 100% dedicated to amphibious operations under fire would be a fool’s errand, but more dangerous would be to gap a crucial element of national power when the world is becoming more dangerous.

Numerous historical precedents counter the argument that only dedicated ships of war can be used under fire. Most apparent was the massive emergency nationalization of merchant shipping during World War II. Thousands of tons of civilian shipping, manned by civilian mariners, were mobilized and made a crucial contribution to winning the war. Losses were great, with 1,614 ships sunk from 1940 to 1947 (post conflict losses due to remnants of war) and 9,521 merchant seaman giving their lives in service to the country. Merchant seaman had a 1 in 26 chance of being killed in action, greater than that of any the four services. Clearly, our national history shows that civilian mariners are capable of risking all in service to their country.

The SS Atlantic Conveyor became an unorthodox aircraft carrier during the Falklands War
The SS Atlantic Conveyor became an unorthodox aircraft carrier during the Falklands War

Another useful example is that of Great Britain during the Falklands war of 1982. In an economic situation eerily similar to today, the British government had to make many choices of need rather than want during the 1970s. Economic malaise led to drastic defense cuts, and all strategic guidance pointed toward the threat of the Soviet Union and continental Europe.  History demonstrated that war rarely happens where governments want or plan for it to occur. Only a year after London mothballed several of its carriers and amphibious ships, Argentina invaded the Falklands and presented operational and strategic challenges of the highest order to the British Government.  In an amazing example of military mobalization, Great Britain took two civilian container/roll on-roll off (RO/RO) ships and converted them to ad hoc helicopters and VTOL carriers. They carried Harrier GR.1’s and Sea King Helicopters, and gave British commanders operational agility in the form of air cover and lift capacity. Tragically one of the ships was sunk along with several Royal Navy combatants.

The lesson to take away is that, while as much as we may want to envision a conflict of our choosing, it is more likely that we will end up faced with decisions we did not anticipate. If we have to create capability on the fly and mobilize merchant shipping after we are on the right sight of boom, our forces will face greater risks.

CAPABILITIES DO NOT APPEAR BY “JUST ADDING WATER”

Now is the time to begin planning for the worst. Using civilian shipping in amphibious operations is feasible and more cost-effective than waiting on billion dollar ships that have procurement cycles measured in decades. Training on the lower end of the conflict spectrum in operations such as humanitarian and disaster relief will increase civilian/ military amphibious force ability. Earlier integration into MEU and ARG structures to work out inevitable issues of interoperability will make the inclusion of merchant ships into higher spectrum operations a more risk tolerant option.

Most critically, planning for and using merchant shipping options now will keep our amphibious blade sharp, and capabilities will be less affected than if we remain on our current course of a letting them wither, and eventually die, on the vine. Few operations rival an amphibious movement in terms of complexity, and hoping for the best when marines and sailors conduct one under fire in the future is not only negligent, it is immoral. Utilizing the merchant shipping now and planning for its use until our amphibious force is stabilized is a viable strategy that deserves greater attention.