The Playing Fields: Sports and Warfighting Readiness

By Phil Bozzelli and Paul Giarra

The Duke of Wellington’s aphorism “The Battle of Waterloo was won on the playing fields of Eton,” has been widely accepted as a validation of sports and their greater relevance to warfighting and victory. We take that statement at face value but go further.

Using the renewed emphasis upon warfighting within the defense and naval establishments, we propose that sports at our service academies, especially the U.S. Naval Academy, do more than provide venues for exercise or competition. Rather, those activities and their participants should be an integral part of the warfighting curriculum of those institutions just as everything else there should be.

This theme leverages the basic relationships between sports and warfighting. In the former one needs to know and understand himself, his teammates and his opponents. It is no different in warfare, where the stakes are higher and therefore the knowing and understanding of one’s self, allies and enemies is of even greater importance for success. Warfare thinking and action are focused upon the international environment.

The global population has embraced sports as a way to improve understanding and relations between nations. The Olympics are the most obvious manifestation of this reality. We have all witnessed how this venue has become, over the decades, a demonstration of either national pride, wealth, political ideology, or a combination of all as well as other positives and negatives. These gatherings have, as a minimum, permitted an up-close and extended engagement by and among the individual athletes themselves.

America does bring foreign officers to the U.S. for training and education exchange programs. Some exchanges involve officers at the more senior levels whose thinking has already been largely shaped and is done in a generally formal classroom environment. This schooling process includes little participation of America’s less friendly counterparts and for the most part it takes place on American soil.

USNA has 33 varsity sports at the national competition level and 25 intramural and club sports for those not competing at the varsity level. America’s other service academies operate similar programs (e.g. West Point offers 25 varsity sports and 28 intramural and club teams). All midshipmen (and cadets) are engaged in one or more sports or athletic activities, but essentially all on the domestic scene.

This sporting, intramural, and club scene is dynamic not only in content but in venue and physicality. The digital age has introduced E-Sports, gaming and wargaming as competitive processes that fill stadiums and require superb hand-eye coordination analogous to that of professional basketball players but while seated at a computer screen. The games have transitioned from general games to those that mimic live sports as well and they too have transitioned to international levels of competition monitored by its version of the NCAA (Global Esports Federation – GEF). Similarly, the military-focused wargaming genre has joined this digital competitive environment.

The National Defense Academy of Japan (NDAJ) manages to field 37 sports at various levels (even including traditional American sports like football, basketball, etc.). USNA (and USMA) have about the same number of students as at the NDAC with the major difference being that the NDAJ offers a three-year education to future officers of all services before they go on to separate one-year schools for their individual militaries.

To varying degrees, militaries have officer-based sporting teams at different levels of skill within and without the primary service school. The Indian Navy has the largest naval academy in Asia and offers at least nine sporting teams. The Royal Navy, in addition to sports teams at its Naval School, fields a vast variety of teams throughout its naval establishment. China’s PLAN sporting focus, as can be determined from afar, appears to be more of a utilitarian team building type, although it does field a seriously respected rugby team. Interestingly, the PLA has not lagged in joining the digital age of competition, with E-Sports and wargaming popular among its military and civilian schools.

The various USNA teams should engage internationally with their friendly and not-so-friendly international military equivalents. The numbers of USNA teams provides significant engagement opportunities at varying appropriate skill levels dispersed over the entire calendar year. An environment exists where competition can be fair and appropriate as well as useful to help produce the warfighting leadership of the future. This proposed international engagement via sports far exceeds that international experience available to midshipmen from any other current program. It is on the international fields and seas where these officers will engage in war and peace.

We do not wish to engage here in a debate regarding how strong the warfighting focus has been of the USNA in recent years. However, it is clear that “warfighting” is currently being emphasized. The newly installed Secretary of Defense has made clear his focus and emphasis is upon warfighting and war readiness. This echoes the previous Chief of Naval Operations in her 2024 Navigation Plan for its “Warfighting Navy” headline and focus.

There is a renewed awareness and focus upon warfighting ability and readiness as the primary, if not singular, mechanism for maintaining peace. As one of the nation’s commissioning sources of naval officers the burden is upon USNA not only to support but to lead in this warfighting mission via its classrooms, dormitories and playing fields.

We are not starting from ground zero. The USNA offshore sailing team recently competed and won at the Ecole Navale International Sailing Week Competition, and in May 2024 the USNA had part of its men and women rugby teams participate in a State Department sponsored Rugby 7 tour of Fiji, Samoa and Tonga. We are proposing an organized expansion of these efforts not just for the sport but for the inherent benefit it brings to America’s national security via the education of its future Naval leaders in meeting the USNA mission that the naval officer “must be a great deal more.”

August 23, 2025 – U.S. Marine Corps Lance Cpl. Luis Camacho, Scrumhal for the U.S. Marine Corps Men’s 7s Rugby team scores the winning try against the U.S. Coast Guard team. (Photo by Petty Officer 2nd Class Theodore Lee)

Our interest in this subject came about when we became involved on the periphery of an invitation from the NDAJ’s four-star level civilian head to the USNA rugby team, via its coach, for the team to join in a rugby tournament at the NDAJ that would include teams from the NDAJ, the UK (Royal Naval College) and France (Ecole Navale). USNA’s Rugby team’s schedule and other factors (e.g., financing, event timing, NCAA rules etc.) precluded USNA participation.

We must first call attention to and highlight the significance of this NDAJ rugby initiative given the historical political and societal factors operating in that nation. We see sports related thinking as a “big deal.” The NDAJ rugby initiative not only reinforces the transnational utility of sports but offers a focused interpersonal engagement vehicle for military forces – friendly and not – which the U.S. and U.S. Navy should leap upon and expand. The more important aspect is the engagement with non-friendly nations.

The NDAJ and USNA catalog of sports is more typical than not of what exists at the world’s various service academies. Further, and more importantly, is the global shift in military attitudes exemplified by the Japanese government’s more visible foreign policy on the world’s stage to include this invitation to both the USN and its major seagoing allies via their officer producing schools.

Our contention is that it is all about warfighting to include having the necessary warfighting skills to achieve success without war. In the words of Wellington, “Not all naval battles are fought at sea!” Once one accepts this dictum, the tradeoffs required in terms of time and funding between these events and more traditional activities of Midshipmen (e.g. summer cruises) can be more equitably evaluated.

The “whys” for doing this are probably limited more by experience than imagination, so we list but a few of the more obvious. Whether one is a “globalist” or not, the reality is that America’s military has been involved globally since its founding and this is especially true of its sea services – the Navy, Marine Corps and Coast Guard – whose officers are expected to function as diplomats in their international engagements, even at junior levels. Doing this well requires more international engagement sooner and over a longer period of service time.

The history of the world and certainly that of America from its beginning has made clear the need for supporters, friends, allies, partners regardless of whether the objective is military, political, economic or diplomatic. Whether that non-American shows up as a ship in our formation, a soldier in an adjacent fox hole, an article in some foreign media, a vote in some organizational chamber, some piece of needed foreign real estate or overflight, a trading partner or lender or simply an unpretentious “flag” among many – we all know and accept this need and the utility of someone to satisfy it. Perhaps, even more importantly, we appreciate that we must nurture these relationships if they are to be maintained or improved upon. For the military officer, this is not about “good will” or “friendships” it is about what is required in terms of knowledge about both allies and possible enemies.

For the naval officer this relationship between knowledge and warfighting is lifelong and consistent. It begins at USNA with its motto Ex Scientia Tridens (From Knowledge Sea Power), engraved on every USNA graduate’s class ring. It continues and is reinforced with the U.S. Naval War College motto of Viribus Mari Victoria (Victory through Sea Power); and these academic guidons become seagoing reality in the U.S. Seventh Fleet’s Ready power for peace.

The authors’ experiences have been that there has been and remains a great deal of ignorance and misunderstanding of what transpires in the minds and cultures of others. This deficiency occurs at all institutional levels, public and private. Therefore, being able to make critical judgments regarding what others present becomes ever more important as the pace and sourcing of information is growing exponentially. While critical thinking ability is essential for the domestic environment as well, our focus is warfighting wherein both the opponents and allies will be foreign.

A major, if not the greatest, impediment to international success and a contributor to contentions has been ignorance or misunderstanding of the history, culture, motivations, beliefs, psychology of others. A deficiency compounded in this modern era where English is the new global lingua franca. Because American “culture” (e.g. Apple, pop music, entertainment) is dispersed to the furthest corners of the globe and all are joined together via the Internet and social media, we therefore assume, incorrectly, that others think and are motivated as we are.

Despite varying bloody, military conflicts since World War II’s VJ day, the vast majority of America’s military effort, and especially that of its Navy, has been on peaceful non-kinetic engagement with neutrals, friends, allies, opponents, competitors around the world. All of these actions are either directly or indirectly pointed to enhancing that warfighting prowess to be there when needed and be visible and accepted so as not to be needed.

Although the NDAJ and rugby were the impetus for this article, the opportunities are more extensive and the demand pressing enough that the U.S. and especially the U.S. Navy should take a leadership role in making this happen using the hype created by the Olympics, international athletic competition, and the ever-present forces necessitating “gray zone” engagement. As demonstrated repeatedly, sports allow engagements where otherwise precluded by politics.

This puts the NDAJ invitation in a different light, not just as a friendly school-to-school athletic challenge, but as an opportunity for international exposure, country-to-country understanding, and bonding with friends and allies. And to emphasize the earlier points, this is not just about Japan or Rugby but the broader opportunities across all sports and all nations for a deliberate military to military engagement program in a different sort of classroom and “battlefield.”

Clearly, there are requirements that would have to be met, such as funding, carving out time in already packed academic and sports schedules, and meeting NCAA restrictions. Held against the international opportunities for building personal and professional relationships and improving understanding among all parties, these are not obstacles, but simply the cost of doing business. It is probably not an exaggeration to state that all that takes place in the lives of Midshipmen is geared to turning them into competent naval officers, citizens, and leaders. Consequently, the time allocated to these various endeavors is justified and valid as is the funding, regardless of its source (e.g. government budgets, donations, alumni funding, sports revenue etc.)

These are all costs that need to be sourced. However heavy the financing thumb is on the scale, it should be balanced by potential gains, financial and otherwise. Depending upon where and how these contests are conducted there is the opportunity for revenue such as from advertising, broadcasting and tours. Neither USNA nor the U.S. government itself are novices in this category. On that same counterweight side of the scale are the intangible benefits of image, recruiting across the board, good will, cultural understanding and messaging all done via the more acceptable and less intrusive vehicle of sport.

Although this proposal is directed at the junior levels of the military, our experience has been that a shared background of military service provides a degree of basic rapport that often does not exist between the military and civilian of even the same nation. This is especially true for the sea services where the impartiality of the seas, winds and skies allows one ship’s captain to readily baseline himself with another regardless of nationality. Similarly, competitive athletes at all ages have this shared understanding among their international colleagues. A boxer or wrestler or oarsman or whatever knows, appreciates and has a common foundation with his fellow competitor regardless of nationality because the common vigor of the shared sport transcends borders. Thus, there is an important starting framework from which to go forward – shared naval schooling background combined with common sporting experience.

Basically, getting to “Yes” will include understanding by U.S. leaders that this is both an internal and external political – military issue of great significance. We recommend the following:

1. Begin with “Of course we will participate” and find a way.

2. Start early, quickly and small – focus upon a successful beginning.

3. As with the launching of ships, it is important to “grease the skids” at all stakeholder levels, from coaches to national governments to funders to help ensure success

4. Following on to the NDAJ receptivity and initiative regarding Rugby, Rugby may be the logical beginning; however, pursuing this as the first step may violate the above idea of “early, quickly and small.”

5. The U.S., U.S. Navy, and the U.S. Naval Academy have so many options in terms of sports, timing, venues (domestic and international), and opponents that it is difficult to see an obstacle to an early success once the decision is made to participate.

6. There are several way to fund this program: Academy supporters, athletic and team supporters, patrons, corporations, U.S. DOD and non-DOD funds.

7. Planning around academic year class schedules is difficult, but not impossible. Summer cruises can be designed around team participation as is done now for major sports; venue selection can facilitate the time required for the event. Therefore, we see this as a year-round activity.

8. Treat this program the same as Olympic team participation. There are clear precedents for scheduling and funding for military personnel.

9. Recommendation 1, above, to participate, is not enough: Lead!

Finding a way requires the collaboration of many parties. However, the leadership initiative rests with the Superintendent of the U.S. Naval Academy who has authority for the human resources required for this program and whose staff includes an International Engagement Office, which may need expansion in both depth and breadth to develop and execute a successful program.

There will be various arguments as to why the above is either too difficult or unnecessary. We address three:

1: NCAA rules: important enough to USNA’s Division 1 status and all that goes with it to have a compliance officer on the USNA Athletic Association staff to ensure the coaches adhere to the rules. However, as any tourist to Annapolis will see on display in either a souvenir shop or on the back of a midshipman tee shirt the logo “USNA, not college”. Within and without the USNA, there needs to be a reminder that the service academies have a purpose that goes beyond and sometimes conflicts with that of just being a major educational institution. Further, there are NCAA rules, such as the transfer portal entry, that the USNA is not able to employ. If the USNA becomes serious about executing this proposal, working the NCAA rules process to satisfy all requirements is probably achievable.

2: USNA’s to-do list: that USNA’s superintendent has much to do and adding something else such as this to that work list is counterproductive. The US government and the US Navy furnishes the Superintendent with a significant sized staff to include an already existing International Engagement Officer. We acknowledge that there is no shortage of projects being thrust upon the USNA leadership; however, we think all these endeavors, whether new or traditional, first need to be evaluated and prioritized accordingly by the leadership, writ large, before being rejected. As addressed above, we see the USNA’s primary mission as being that of educating and training entry level naval officers in a manner consistent with the missions of the operating fleet and its other educational institutions. Under this logic every opportunity to educate midshipmen within the framework of warfighting makes sense as an element of the USNA mission.

3: Vehicles, such as CISM (International Military Sports Council) already exist to do such: therefore, use that mechanism rather than something new or different. For reasons best known to USNA, the institution has had no noticeable participation via CISM. Those reasons would certainly have included obstacles such as the NCAA rules, financial support, schedules etc.

While useful in part within that structure, the NDAJ rugby invitation and its acceptance by others sends the message that other vehicles exist, are used and are probably preferred. The recent USNA sailing competition in France and the USNA Rugby 7 tour of some of the South Pacific islands are but two examples. Perhaps most importantly are the objective and who leads.

The objective is to enhance warfighting prowess of America’s Naval Forces. Objectives of such institutions as CISM (The ultimate goal is to contribute to world peace by uniting armed forces through sports. The motto under which we operate is “Friendship through Sport) or even that motivating the USNA Rugby 7 tour of the South Pacific (“to enhancing our partnership with the Pacific Islands and the respective governments to achieve our shared vision for a resilient Pacific Islands region of peace, harmony, security, social inclusion, and prosperity) are all well and good but should not and cannot be the objectives of military forces. We say this with full appreciation that a competent warfighting military force can certainly help produce the environment for these other outcomes, as reflected in the US Seventh Fleet’s maxim “ready seapower for peace,” but the operative action is power – seapower and warfighting ability.

The ability of America’s military to perform its primary function – defense of the United States and its objectives – will, as always, depend upon the skills and willingness of its military leaders to lead – to lead internally and externally. Without denigrating the utility, value, importance of friends, allies and international cooperation, the reality – welcomed or not – is that the external world for the foreseeable future is looking to and expecting U.S. leadership. Therefore, we expect America and its naval leadership to lead here as well.

We close with this reminder – “Not all naval battles are fought at sea!”

Captain Phil Bozzelli, USN (Ret.) is a retired Surface Warfare Officer who served as Defense Attache in Rome.

Commander Paul Giarra, USN (Ret.) served as a Navy pilot, attended the National War College-equivalent National Institute for Defence Studies in Tokyo, and was a varsity lightweight oarsman at Harvard.

Photo: Members of the U.S. Navy and U.S. Coast Guard Men’s 7s Rugby teams contest for possession of the ball during a scrum, Aug. 22, 2025. (Photo by Petty Officer 2nd Class Theodore Lee)

China’s Coming Small Wars

By Michael Hanson

The world took note of the meteoric growth of China’s People’s Liberation Army (PLA), both in size and capability. Specifically, the PLA and PLAN’s amphibious capabilities development is impressive and alarming. According to many experts, the reason for this rapid development is the forceful reintegration of the island of Taiwan into the People’s Republic of China (PRC).1 Analysts argue that a PLA cross-strait amphibious invasion of Taiwan would be the largest amphibious assault in history, greater in scale and complexity than invasions of Normandy and Okinawa, the largest amphibious operations in each theater during World War II.2

A cross-strait operation would be a serious challenge for a world-class military. Though the Chinese military is quickly reaching peer status with the United States military in many areas, the PLA is not currently ready for a daunting amphibious invasion of Taiwan. The PLA remains untested. Chinese leaders will likely subject their prototype to a series of test runs before committing to such a fateful mission. History and current events show small wars and limited interventions serve as useful training grounds to develop the leadership, processes, and capabilities of military forces for larger designs. At present, North Korean troops are active participants in the war in Ukraine to presumably gain combat experience of their own.3 Likewise, before China embarks on a major war, it will likely hone its edge in small ones.

According to the renowned military historian Basil H. Liddell Hart, “A landing on a foreign coast in the face of hostile troops has always been one of the most difficult operations of war.”4 To establish a lodgment, not only does the offensive force have to overcome a defending force, but significant geographic and climatic factors. Once successfully seizing a beachhead, the attacker must break out from it and begin a land campaign in which it can still meet defeat if it does not have adequate logistics to sustain its campaign. Even once ashore, the challenges of sustaining a campaign overseas are significantly greater than doing so overland. It is for these reasons that successful amphibious campaigns have been the domain of a relatively few militaries in modern history.

China seeks to join the small pantheon of militaries effective at amphibious operations. However, China’s military last combat experience occurred during the Sino-Vietnamese War of 1979. In that conflict Vietnamese militias stymied Chinese offensive thrusts while the bulk of Vietnam’s People’s Revolutionary Army was simultaneously engaged in Cambodia. Though the Chinese never officially acknowledged their casualty figures, independent estimates contend China suffered up to 25,000 killed in action and 37,000 wounded in the month-long war.5

The PLA made enormous strides in the 45 years since its last war. In 1979, China possessed a peasant army organized and equipped for what Mao Zedong called “Peoples’ War,” or guerrilla war.6 However, modern conflict changed China’s calculus. Following the American overwhelming triumph in the 1991 Persian Gulf War, China embarked on a massive military modernization.7 Chinese President Xi Jinping, recently charged the PLA to prepare for war, even uttering the words “dare to fight” during a visit to the Eastern Theater Command, the military district responsible for Taiwan.8,9 Experts assert President Xi is referring to forceful reunification of Taiwan.10

Before undertaking such an enormous and consequential operation the PLA must demonstrate its proficiency. China has conducted numerous exercises and drills, but these displays of military might will not prove sufficient. 11 The crucible of real combat must test PLA leadership, units, and operational methods before attempting an invasion of Taiwan. China’s adversaries should remain attuned to China’s engagement in small wars as means to advance political objectives and test its forces in preparation for a Taiwan invasion.

Contingency operations provide a wealth of knowledge and experience. For these reasons, these limited engagements serve as the most effective training operations. Indeed, throughout history countries have used active battlefields as schoolhouses for improving their combat capabilities, especially engaging in small wars to prepare for a larger one.

From 1937 to 1939, civil war raged in Spain and outside powers supplied troops and equipment to both sides. Though volunteers came to Spain from around the world, Germany, Italy, and the Soviet Union provided support with the express purpose of gaining knowledge and experience, and testing equipment and doctrinal methods with an eye on the future. Germany, rearming from the severe restrictions of the Treaty of Versailles, exploited this opportunity to test its new tanks and airplanes, while employing new concepts.12 Germany’s famed Condor Legion, a unit consisting of both air and ground elements, was the vessel that gave some 19,000 German soldiers and airmen experience in a warzone.13 This was to be an investment that would pay off handsomely in a few short years.

As German arms and ideas were subjected to experimentation in Spain, the Wehrmacht learned other valuable lessons during Adolf Hitler’s bloodless conquests. In Germany’s remilitarization of the Rhineland, as well as its annexations of Austria, the Sudetenland, the rest of Czechoslovakia, and finally Klaipeda, the Wehrmacht gained valuable experience in these unopposed invasions. These campaigns without battles allowed the German military to execute planned movements to seize objectives and secure key terrain and critical infrastructure. The Germans employed tactical and operational methods to set conditions for mutual support when contested. Though the Germans faced little opposition, they experienced other friction and fog inherent in war. In the process of working through these challenges, the Germans profited enormously, specifically in the areas of mobilization, deployment, logistics, and command and control.14

The United States, in fact, has a long history of developing its military in small wars close to home, but perhaps the most notable are in the period between the world wars known as the Banana Wars. Many American senior commanders in World War II cut their teeth as junior officers in these Latin American interventions, from the soldiers who chased Pancho Villa on the Mexican Border just before World War I, to the Marines who fought bandits in Haiti, Santo Domingo, and Nicaragua during the interwar period. More notable than the personalities who served in these small wars are the lessons in warfighting they brought back with them, such as the Marine development of close air support to tactics in jungle fighting that the “Old Breed” passed to their new recruits in preparation for Guadalcanal.15

More recent small-scale interventions in America’s near abroad have had notable impacts on the American military as well. Early confusion in Operation Urgent Fury in Grenada exposed gaps in intelligence, planning, and joint interoperability in execution that helped instigate the reforms of the Goldwater-Nichols Department of Defense Act which dictate high level organizations and processes to this day.16 On the other hand, the rapid success of Operation Just Cause in Panama seemed to validate doctrinal planning and training methods.17 Both short and decisive operations did much to improve America’s military stature in the rough wake of the Vietnam War.

Other countries have learned from limited adventures abroad as well. The severe shortcomings of Russia’s 2008 invasion of Georgia with its rusty leftover Soviet military served as a wake-up call to President Vladimir Putin. The poor performance of Russian leaders, personnel, units, equipment, and procedures led to massive overhaul of the Russian Army, with a modernization program to upgrade all of these areas of disappointment.18 After several years of development, President Putin utilized Syria as a testing ground for new Russian weapons as well as a stage to advertise their capabilities to the world.19 The results of this build-up, combined with Russia’s initial proxy war in Ukraine, served to convince the world of a daunting Russian military machine, an image that was only dashed when Putin squandered these reforms with his ill-advised and poorly planned conventional invasion of Ukraine in 2022.

Yet while the Russian war machine is bogged down in cratered and shell-blasted Ukrainian landscapes reminiscent of the battlefields of World War I, China continues developing its own capabilities. Chinese military spending rose significantly in 2024 to $236 billion.20 Recent Chinese developments include the 2022 launch of a Type-003 Fujian aircraft carrier, comparable to an American Nimitz class super carrier.21 In addition to this crown jewel of power projection, the PRC launched their fourth Type 075 Helicopter Landing Dock (LHD) ship, comparable to the American Tarawa and Wasp class amphibious ships, and other amphibious dock landing ships that complement this platform to round out the Amphibious Ready Group construct.22 Like the American Marine Expeditionary Units (MEUs), these acquisitions give China a suite of crisis response and power projection capabilities. They have even built several classes of at-sea replenishment ships to support their fleet far from home waters.23

PLAN Type 75 LHD CNS Hubei during a training exercise. (China Daily photo)

The question remains whether platforms similar to Nimitz class aircraft carriers, Tarawa/Wasp Class helicopter ships, and underway replenishment ships are necessary for a cross-strait invasion of Taiwan when the island is already within range of airfields on the Chinese mainland. More likely these are intended for power projection in their near abroad. In other words, the world may witness a coming era of Chinese gunboat diplomacy and small war interventions similar to the Banana Wars during the period of rising American hegemony. With over $1 trillion invested since 2013 and as of 2023, 147 countries signing on to the Belt and Road Initiative, China has lots of opportunities to intervene in overseas contingencies to defend its national interests.24 In line with former Chinese President Hu Jintao’s call for the People’s Liberation Army Navy (PLAN) to conduct “new historic missions,” the PLAN is already at work flexing its muscles abroad.25

Since 2009 the PLAN has participated in international counter-piracy operations in areas such as the Gulf of Aden, Bab-el-Mandeb, and Arabian Sea.26 Since the start of the Israel-Gaza War, the PLAN dispatched naval forces to the region following Houthi attacks on merchant ships in the waters off of Yemen.27 While the PLAN routinely operates from a military base in Djibouti, one expert warns this outpost will only be the first of many Chinese overseas military bases.28, 29 Yet Chinese involvement in multilateral military missions extend to the land as well.

In recent years, over 2,000 Chinese troops deployed to conflict zones in Mali, Darfur, South Sudan, and the Democratic Republic of the Congo.30 These deployments are not a recent developments. Since 1992, China has deployed over 50,000 troops to no less than 29 United Nations peacekeeping missions, losing 24 killed in these operations.31 Of the permanent members of the UN Security Council, China contributes the most personnel to UN missions. President Xi Jinping offered to provide 8,000 troops to a United Nations standby force in 2015.32 As Chinese sailors, soldiers, and airmen gain experience in overseas contingencies, the Chinese military builds its capability to pursue larger missions, like an invasion of Taiwan.

Conclusion

The world has time before China could attempt to use force to bring Taiwan under its heel. However, every year that passes, they increase their readiness. Drills and training exercises certainly increase a military’s abilities. However, only so much can be learned in sterile, controlled training environments. China will likely test its military might in small wars before embarking on a larger one. The world should take note of China’s entry and actions during a small war. When the People’s Republic of China does engage in a small war, the world will know China is preparing for the forceful reunification of Taiwan.

Major Michael A. Hanson, USMC, is an Infantry Officer serving at The Basic School, where the Marine Corps trains its lieutenants and warrant officers in character, officership, and the skills required of a provisional rifle platoon commander. He is also a member of the Connecting File, a Substack newsletter that shares material on tactics, techniques, procedures, and leadership for Marines at the infantry battalion level and below.

References

[1] Ian Easton, The Chinese Invasion Threat, (Manchester, UK: Eastbridge Books, 2017) Foreward.

[2] Council on Foreign Relations. “Why China Would Struggle To Invade Taiwan.” https://www.cfr.org/article/why-china-would-struggle-invade-taiwan. Accessed March 26, 2024.

[3] Karolina Hird, Daniel Shats, and Alison O’Neil, “North Korea Joins Russia’s War Against Ukraine: Operational and Strategic Implications in Ukraine and Northeast Asia,” Institute for the Study of War, last updated October 25, 2024. https://www.understandingwar.org/backgrounder/north-korea-joins-russias-war-against-ukraine-operational-and-strategic-implications. Accessed July 31, 2025.

[4] Joint Chiefs of Staff, Amphibious Operations, JP 3-02 (Washington, DC: Joint Staff, 21 January 2021). I-1.

https://www.jcs.mil/Portals/36/Documents/Doctrine/pubs/jp3_02.pdf. Accessed March 26, 2024.

[5] Zhang Xiaoming, “China’s 1979 War with Vietnam: A Reassessment,” The China Quarterly 184 (Dec 2005)

[6] Edmund J. Burke, Kristen Gunness, Cortez A. Cooper III, Mark Cozad, People’s Liberation Army Operational Concepts, (RAND Corporation, 2020). 4.

[7] Edmund J. Burke, Kristen Gunness, Cortez A. Cooper III, Mark Cozad, People’s Liberation Army Operational Concepts. 4.

[8] Miriah Davis, “President Xi Jinping orders Chinese military to prepare for war over concerns national security is ‘increasingly unstable, uncertain’”, Sky News Australia, November 9, 2022. https://www.skynews.com.au/world-news/president-xi-jinping-orders-chinese-military-to-prepare-for-war-over-concerns-national-security-is-increasingly-unstable-uncertain/news-story/db8ca191e86fd81a23b3b794ff4f2a0e. Accessed March 26, 2024.

[9] “China’s Xi Jinping says army must ‘dare to fight’ during military inspection,” The Straits Times, last updated July 6, 2023. https://www.straitstimes.com/asia/east-asia/chinas-xi-jinping-says-army-must-dare-to-fight-during-military-inspection. Accessed March 26, 2024.

[10] Brad Dress, “China will be ready for potential Taiwan invasion by 2027, US admiral warns,” The Hill, March 21, 2024. https://www.msn.com/en-us/news/other/china-will-be-ready-for-potential-taiwan-invasion-by-2027-us-admiral-warns/ar-BB1kjib7. Accessed March 26, 2024.

[11] Kristin Huang, “Chinese military drills simulate amphibious landing and island seizure in battle conditions,” South China Morning Post, July 28, 2021. https://www.scmp.com/news/china/military/article/3142851/chinese-military-drills-simulate-amphibious-landing-and-island. Accessed March 26, 2024;

[12] John T. Hendriz, “The Interwar Army and Mechanization: The American Approach,” Journal of Strategic Studies 16:1 (1993). 87-88.

[13] John T. Correll, “The Condor Legion,” Air & Space Forces Magazine, February 1, 2013. https://www.airandspaceforces.com/article/0213condor/. Accessed March 26, 2024.

[14] Williamson Murray, The Change in the European Balance of Power, 1938-1939: The Path to Ruin, (Princeton, NJ: Princeton University Press, 1984) 152-153.

[15] Mark R. Folse, “Never Known a Day of Peace,” Naval History 35:4, August 2021. https://www.usni.org/magazines/naval-history-magazine/2021/august/never-known-day-peace. Accessed March 26, 2024; Joseph H. Alexander, “Close Air Support: The Pioneering Years,” Naval History 26:6, November 2012. https://www.usni.org/magazines/naval-history-magazine/2012/november/close-air-support-pioneering-years. Accessed March 27, 2024.

[16] Ronald H. Cole, Operation Urgent Fury, (Washington, DC, Office of the Chairman of the Joint Chiefs of Staff, 1997). 6. https://www.jcs.mil/Portals/36/Documents/History/Monographs/Urgent_Fury.pdf. Accessed March 27, 2024;

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Featured Image: Rigged with combat loads, paratroopers assigned to a brigade under the Chinese PLA Army file into a Mi-171E transport helicopter during a parachute training exercise in September 2025. (Photo via eng.chinamil.com.cn/by Hu Qiwu)

Maritime Statecraft and its Future

By Steve Brock and Hunter Stires

With shipping and shipbuilding receiving high-level political and diplomatic attention across two administrations after decades of neglect, the United States has the chance to realize a much-needed maritime revival. Having initiated a change in course from the past forty years of stagnation, Washington should double down on its winning bipartisan strategy to build maritime power through allied investments in U.S. shipping and shipbuilding—and keep off the rocks and shoals that could run the nascent American maritime renaissance aground.

History demonstrates that no great naval power has long endured without also being a great commercial maritime power. Yet for the past four decades, America has attempted to defy this maxim, starting in 1981 with the choice to cut off government support for American commercial shipping and shipbuilding, allowing those industries to wither at home and ultimately move abroad. Since that decision, successive administrations of both parties have lulled themselves into the false reassurance that in this latest era of globalization the United States did not need a vibrant commercial maritime industry, and that America would still be able to affordably field a dominant Navy without one. Similarly, the outcome of the Cold War seemed to have rendered a conclusive verdict that the American-style capitalist economy—one characterized by robust marketplace competition—was superior to the Soviet-style planned economy. Yet starting with the infamous “Last Supper” in 1993, the U.S. government and industry have effectively engineered competition out of the defense industrial base. Successive administrations of both parties have since assured themselves that real competition is unnecessary and even counterproductive to national defense, and that monopolies across most individual ship classes, aircraft types, and weapon systems would in fact be more efficient for the government to manage than a competitive business environment with multiple rival vendors.

It is now clear that these two calculations were wrong. The past thirty years of ballooning costs and delays in Navy shipbuilding programs, the growing gaps in the U.S. Merchant Marine’s capacity to support wartime contingencies, and the domestic industrial base’s inability to affordably recapitalize the reserve sealift fleet all point to the same conclusion. The twin experiments in attempting to field a blue water Navy without a commercial maritime industry to support it, and concurrently eliminating competition from the defense procurement landscape, have failed. As Colin Gray writes, “tactical mistakes may kill you today, while operational error may prove fatal in days or perhaps weeks…. A strategic error in statecraft or strategy may take years to reveal itself in its full horror.” Today the United States is experiencing the compounding consequences of two such strategic errors committed decades ago.

Over the same period that the sinews of American seapower have atrophied, China has systematically expanded its own seapower, creating globally dominant, state-backed commercial shipping and shipbuilding industries. China has used this industrial base to rapidly build the People’s Liberation Army Navy from humble coastal origins into a blue water force capable of credibly threatening the U.S. Navy at sea. Those concerned by China’s rapidly expanding navy should be even more alarmed by its ability to set the terms for the global movement of goods in peacetime or crisis using its levers in global maritime finance, shipbuilding, shipping, bunkering, port ownership, and shoreside logistics.

Washington’s decades-long run of political seablindness has not changed America’s immutable geographic relationship to the world’s oceans. The United States remains inherently dependent on the sea for political, economic, and military access to the world’s population and markets, the overwhelming majority of which reside outside North America. China’s emergence as a full spectrum maritime power – and not just a naval power – means that the United States can no longer indulge its longstanding strategic errors to mortgage its maritime future.

To address this critical national strategic vulnerability, the authors formulated and began implementing under the leadership of Secretary of the Navy Carlos Del Toro an innovative new strategy to build and apply American seapower. This approach, now known as Maritime Statecraft, begins from the recognition that naval shipbuilding, commercial shipbuilding, and commercial shipping are not distinct problem sets as they have been treated for many years, but are in fact inextricably linked parts of a national seapower ecosystem. Many of the solutions to the Navy’s most pressing challenges lie outside the Department’s own lifelines, demanding a creative, multi-pronged approach to solve them, leveraging the unique position of the Secretary of the Navy to drive results only possible through collaboration at the highest levels of government and industry. Maritime Statecraft has proven durable, with notable bipartisan continuity through the transition into the new administration.

From the perspective of naval shipbuilding, the primary objective of the Maritime Statecraft strategy is to disrupt the current broken paradigm by reinjecting real competition and best-in-class practices into the U.S. naval shipbuilding marketplace. The most effective way of doing this is to attract new market entrants in the form of world-class shipbuilders from overseas allies, incentivizing these firms to open modern dual-use commercial and naval shipyards in the United States. Introducing the integrated naval and commercial model which has proven so successful abroad necessitates creating demand among global shipping firms for U.S.-built commercial ships. Accordingly, the architects of the Maritime Statecraft strategy worked extensively with partners across the Executive Branch and in Congress to broaden government support of U.S. commercial shipping and shipbuilding on the basis of economic security rather than strictly national defense, structuring this government support to make the U.S. shipbuilding industry and the U.S. Merchant Marine economically competitive on the open international market. This expanded approach will create a broader market demand and order volume that will increase overall capacity and health across the industrial base and design enterprise. Re-creating a vibrant commercial shipbuilding industry in America will accrue significant direct benefits to the Navy, driving long term improvement and lower costs across the Naval shipbuilding portfolio. This will create an opening to invigorate and reimagine key alliance relationships at a moment of strain, offering new opportunities to strengthen the common defense while rebalancing the burdens of its maintenance to a more politically sustainable equilibrium.

Standing Into Danger

In a healthy seapower ecosystem, a national navy draws on a relatively small portion of a nation’s overall physical and human maritime resources—shipyards, suppliers, industry workers, and mariners. The majority of those resources are typically devoted to building prosperity through domestic and overseas commerce, creating both the taxable wealth and competitive industrial base that also pays for and builds the Navy. From the Navy’s perspective, such a healthy system enables construction and maintenance of warships at much lower cost, since shipyards and suppliers would distribute their overhead costs to both civilian and government customers, as opposed to just the government.

At present, the American seapower ecosystem is out of balance. The U.S. Navy is the nation’s primary buyer of large ships, with a fleet of 297 battle force warships plus another 130 Military Sealift Command auxiliaries. By contrast, the U.S. Merchant Marine has just 177 commercial ships out of more than 60,000 merchant ships on the world’s oceans today. This reduces the United States to being a strictly naval power and a maritime consumer—dependent on foreign-built and foreign-controlled commercial fleets to move American trade.

A key factor in creating these conditions has been the elimination of internationally competitive U.S.-built and U.S.-flagged commercial shipping over the past forty years. While it has long been more expensive to build commercial ships in the United States and operate them under the U.S. flag, for most of the 20th century an interlocking system of imperfect but intelligent government interventions in the commercial shipping and shipbuilding sectors served to fully offset the higher cost of U.S. ships and mariners relative to foreign counterparts, either through construction and operational differentials in peacetime, or direct government construction of standardized commercial ships during the World Wars. These measures enabled U.S. shipping companies to compete for cargo on the international market at prevailing rates.

Unfortunately, flaws in the subsidy system’s structure, particularly its lack of competitive incentives and its reliance on inaccurate government estimates of foreign ship construction and operating costs, contributed to a loss of effectiveness, and eventually a collapse in political support for the program. In 1981, the Reagan Administration repealed the Operational Differential Subsidy and defunded the Construction Differential Subsidy under the belief that a free-market approach would produce better results and inspire other nations to drop their subsidies. No other country followed suit, and so this policy choice led most of the U.S. commercial shipping sector to either close or move abroad, particularly to countries which continued subsidizing their shipping and shipbuilding industries. This in turn resulted in a wholesale collapse of demand for the U.S. shipbuilding industry, apart from the naval and relatively small domestic commercial Jones Act markets.

While the Clinton Administration created the Maritime Security Program (MSP) in the 1990s to provide a stopgap source of militarily useful commercial sealift in international trade, this program has proved a poor substitute for the prior method of fostering development of a healthy U.S. Merchant Marine. MSP supports a hodgepodge of used, foreign-built ships lacking fleetwide standardization, with the fleet sized to support strictly military requirements for a 1990s-era regional contingency in a permissive maritime environment. MSP’s model of a partial operational subsidy supplemented in peacetime by government preference cargo effectively caps the size of the U.S.-flag merchant fleet at however many ships U.S. government preference and military cargo can economically support in peacetime. It does not factor in the larger requirements for assured sealift for U.S. economic security in either peace or war. MSP is not structured to incentivize U.S. shipping firms to become more competitive over time and, most damaging of all, does nothing to create demand for a competitive U.S. shipbuilding industry.

The resulting situation presents a number of troubling implications for Navy shipbuilding. To begin with, the Navy bears the brunt of virtually all the overhead costs of the shipyards that build and maintain warships, since the Navy is those companies’ primary, if not only customer. Accordingly, the remaining naval-focused shipbuilding industry has sized itself based on what the Navy’s peacetime steady-state procurement budget can economically support. As a result, even though threat-informed studies and Congress consistently signal support for a bigger Navy, the national industrial base lacks the commercial capacity that a healthier ecosystem would be able to draw upon to surge to meet an influx of new naval demand.

The loss of the commercial shipbuilding sector has been compounded by the consolidation of the defense industrial base after the Cold War. These two developments have had the combined effect of all but eliminating real competition between shipyards. The U.S. naval shipbuilding sector has become an uncompetitive series of monopoly-monopsony relationships, with only one yard building a given ship class (the sole exceptions being destroyers and attack submarines, which have duopolies) and the U.S. government as their sole customer. This lack of competition allows shipyards to drive up the prices they charge the Navy while also reducing those companies’ incentives to find efficiencies or make needed capital investments, such as facility modernization.

“We Must Bring Our Shipbuilding Allies to us

By contrast, South Korean and Japanese yards are engaged in a commercial deathmatch with China’s state-backed juggernaut for control of the global commercial shipbuilding market. This unrelenting competitive environment forces yards to invest in state-of-the-art technology and production processes. Intense commercial competition has compelled such a high degree of effectiveness that these three countries now produce 90 percent of the world’s commercial ships. Importantly, their broad international customer bases and integrated naval and commercial facilities allow Chinese, South Korean, and Japanese shipbuilders to effectively subsidize their national naval production with the profits from their commercial work, increasing the purchasing power of their respective national navies. Using their robust dual-use yards, Korean and Japanese shipbuilders are able to construct high-end Aegis surface combatants of respected quality for a fraction of the cost of U.S. equivalents.

The competition in Asia has technological implications as well. Many U.S. shipyards are decades behind the global technological standard set by Korean and Japanese shipbuilders, which was clearly evidenced during a firsthand visit to the facilities of HD Hyundai and Hanwha Ocean by Secretary Del Toro in February 2024. The highly automated shipbuilding and sea trial technologies in use at these facilities are more advanced than anything now in operation in the United States. Unlike their American counterparts, these yards also consistently make substantial, self-funded investments in both production processes and worker quality of life, including housing and training facilities for employees and the crews of visiting ships. Both Hyundai and Hanwha reported near-perfect on-time performance—even during COVID—and can tell customers when their ships will be delivered to the day. This is a far cry from the PowerPoint slides that American shipbuilders often present in the Pentagon, explaining that a given vessel is going to be somewhere between one and three years late.

Given the cutthroat competition among shipbuilders in Asia and the lack of a competitive shipbuilding marketplace in the United States, this result should be unsurprising. At its best, capitalism demands that firms continually invest in innovation and adaptation to find a new competitive edge over their opponents in a Darwinian evolutionary arms race. In the U.S. shipbuilding sector, that process of rivalry, adaptation, and renewal has mostly ground to a halt. U.S. shipbuilders demand the government pay for new infrastructure investments and workforce salary increases—while too often investing their profits into stock buybacks and dividends rather than into improving their core businesses, which are falling behind on their contractual obligations to the Navy. Building the world’s best warships in 1960s-era shipyards is unaffordable and slow, and is unacceptable if the United States is to prevail in the increasingly tense geopolitical competition for the 21st century.

It should be emphasized that outsourcing U.S. government shipbuilding overseas remains—and should remain—a non-starter. Beyond the legal requirement and political imperative to build U.S. government ships in U.S. shipyards, outsourcing new construction to yards in East Asia would be strategic malpractice, not least because the Korean and Japanese shipyards capable of producing U.S.-equivalent combatants are ranged by thousands of Chinese short and medium range missiles. In the course of the implementation of the Maritime Statecraft strategy, Asian shipbuilders and their customers around the world have increasingly come to recognize the value of “defense in depth” and geostrategic diversification of ship production and repair provided by the strategic sanctuary of the United States. One cannot discount the possibility that China could destroy the shipbuilding infrastructure of U.S. allies during a Pacific war to set the stage for even greater PRC maritime dominance in the postwar world.

Additionally, suggestions that the U.S. government might outsource shipbuilding overseas in the future—even temporarily while U.S. production ramps up—surrenders valuable negotiating leverage with major shipbuilders, reducing their incentive to open critically needed shipyards in America, which is a primary objective of the strategy. This led us to a similar approach as drove the inception of the Mulberry Harbors used in the Allied landings at Normandy in World War II. Just as the chief naval planner of D-Day recognized that “if we cannot capture a port, we must take one with us,” the Maritime Statecraft strategy is derived from the similar insight that “if we cannot build ships in the world-class shipyards of our allies, then we must bring our allies to us.” An American maritime revival requires the help of allies, but is only possible if they invest in the alliance by investing in America.

Creating a Better Paradigm

After Secretary Del Toro articulated the vision of Maritime Statecraft in a series of speeches at Columbia, Harvard, and several major naval conferences, the first step in executing this new strategy to restart competition in U.S. shipbuilding was to make contact with the leaders of the foremost Korean and Japanese shipbuilders who build both commercial and naval vessels. This began in February 2024 via meetings in Seoul led by Secretary Del Toro with the Vice Chairmen and CEOs of Hanwha and HD Hyundai, followed by tours of their respective shipyards. Our central message going into each of these engagements in Seoul and Tokyo was a simple, yet profound opportunity – invest in America.

The response has been remarkable and swift. Just over three months after engaging with the Secretary in South Korea, Hanwha announced that it had reached a deal to acquire the Philly Shipyard, a former naval facility now building commercial ships, and successfully closed this transaction in December 2024. Hanwha has since announced plans to invest $5 billion to expand the yard’s facilities, update its technology and production processes, and create more than 7,000 new jobs in order to multiply output tenfold over the next decade and compete for both commercial and naval shipbuilding contracts. Since the Philly Shipyard has not built a naval vessel since 1970, restoring this facility to the naval-facing industrial base will be a significant capacity expansion and value-add for Navy shipbuilding.

HD Hyundai has also taken steps to engage. A major accomplishment was brokering a partnership between HD Hyundai, Seoul National University, and the University of Michigan to create academic and professional exchange opportunities in the education of naval architects, a foundational element of a healthy white collar shipbuilding workforce. HD Hyundai has since signed agreements to collaborate with several U.S. shipyards serving both the naval and commercial markets, and has now publicly announced its intent to acquire of a U.S. yard of its own. Seeing the growing momentum and opportunity of Maritime Statecraft, Davie Shipbuilding of Canada and Finland reached out and met with Secretary Del Toro on multiple occasions, and in July 2024 announced intentions to purchase a U.S. shipyard (subsequently announced to be Gulf Copper and Manufacturing Corporation in Texas) to bring the firm’s world-class icebreaker capabilities to bear on U.S. government programs. Bringing the advanced technologies, production processes, and dual-use commercial and naval business model that have been so successful abroad to American shores heralds a paradigm shift that will transform the U.S. competitive marketplace and incentivize modernization investments by legacy players.

Creating a business case for dual-use shipbuilding in the United States also requires incentivizing commercial demand. The first step on this line of effort was to leverage existing government programs to create favorable options both for dual-use shipbuilders looking to finance investments in their businesses as well as prospective ship buyers looking to finance purchases of U.S.-built vessels. In the spring of 2024, after a year of collaborative engagement and negotiation, the Department of Energy’s Loan Programs Office expanded the eligibility of its multibillion-dollar Title 17 Clean Energy Financing and Advanced Technology Vehicle Manufacturing Programs to include the maritime industry. Title 17 Clean Energy Financing allows for commercial ship buyers to secure Treasury rate loans and loan guarantees to purchase U.S.-built ships that achieve a 10 percent improvement in carbon emissions over legacy single-fuel diesel ships. The Advanced Technology Vehicle Manufacturing Program enables dual-use shipbuilders and secondary suppliers to secure financing at Treasury rates for technology improvements, plant expansions, and other investments in their production facilities.

At home, another important line of effort was recruiting unions as critical partners and stakeholders to advance the strategy across multiple lines of effort. The United Steelworkers led the way in catalyzing the Section 301 investigation of anticompetitive Chinese shipbuilding practices, a key offensive step to push back directly on Chinese dominance of the global maritime industry while also stimulating demand for American steel at a moment when most U.S. steel plate facilities are producing at less than 50 percent of their designed capacity. Domestically, unions have also championed innovative solutions to fill blue collar workforce gaps in many American shipyards. An illustrative example is a partnership with the International Brotherhood of Boilermakers which recruits itinerant welders in the construction trades and provides them with the requisite training and certification to work on Navy shipbuilding programs during lulls in construction demand ashore. After launching a pilot program recruiting skilled welders across five midwestern states in 2024, this rotational expeditionary workforce program was quickly oversubscribed, and cohorts are now working in Newport News to deliver new aircraft carriers.

On the legislative front, the Maritime Statecraft strategy’s implementation took the form of significant technical assistance on the SHIPS for America Act co-sponsored by Senator Mark Kelly, Senator Todd Young, Representative John Garamendi, and Representative Trent Kelly, with Representative Mike Waltz and a large cross-functional working group from government, industry, and academia providing invaluable input to the drafting process. This legislation revitalizes the Title 46 authority for the Secretary of the Navy and the Secretary of Transportation to grant shipbuilding construction differentials on a competitive basis. The bill also creates a new Strategic Commercial Fleet of 250 U.S.-built, U.S.-flagged, U.S.-crewed ships in international trade that would compete for a stipend that would fully offset the higher cost of U.S. construction and operation, to be resourced through a dedicated new Maritime Trust Fund. These and other measures will help prime the pump to incentivize shipping firms to begin buying U.S. ships built by world-class shipbuilders in U.S. yards.

The next phase of the strategy was to directly engage the leaders of the world’s foremost shipowners, beginning with Secretary Del Toro’s visit to the CEO of A.P. Moller-Maersk in Copenhagen. Going into this meeting, we were aware that Maersk and a number of its European peers were discounting the strategic risk of dependence on Chinese shipbuilding and were directing disproportionate shares of their newbuild orderbooks to Chinese shipyards, which continually seek to undercut their Korean and Japanese rivals on price. At the same time, we were aware that European shipping giants were beginning to find themselves under increasing direct pressure from Chinese competitors in the shipping market, with Chinese lines the fastest growing players in the global container trade.

A key objective of our engagements with the European shipping firms was to help them better understand the connection between these two phenomena: whatever discount Chinese yards offer a European ship buyer relative to Korean and Japanese builders, Chinese yards almost certainly offer Chinese shipping firms a far steeper discount. With every new order the European firms place with Chinese shipyards, they directly subsidize the growth of their new biggest competitor in the global shipping market while placing their own companies at geopolitical risk without a fallback shipbuilding alternative outside Northeast Asia. This message is resonating. Indeed, within days of the Secretary’s meeting with Maersk, the CEO of France’s CMA CGM, the world’s third largest shipping firm, reached out to discuss expanding their U.S. footprint, beginning months of productive discussion and collaboration. In March, CMA CGM announced that they would be investing $20 billion into the United States, tripling the size of their U.S.-flag commercial fleet, and creating 10,000 new jobs.

What Must Happen Next

Maritime Statecraft has demonstrated remarkable intellectual staying power through the political transition, with its central pillars publicly embraced by President Trump, Secretary of the Navy John Phelan, and the new White House Office of Shipbuilding in engagements with South Korea and in the April 2025 executive order on Restoring America’s Maritime Dominance. The new administration’s focus on expanding on the blueprint created by its predecessor presages a lasting commitment to a long-overdue national maritime revival that will endure across future administrations of either party.

Going forward, Washington should focus its efforts on supporting and expanding the U.S. investments and commitments already made by players like Hanwha and CMA CGM, and encouraging additional dual-use shipbuilders from Korea, Japan, and Europe to follow through on contemplated U.S. investments. Congressional approval of the SHIPS for America Act and appropriations for the Strategic Commercial Fleet and the Maritime Trust Fund will provide a concrete demand signal for the long-term development of internationally competitive U.S. commercial shipping and shipbuilding. This Fall, the United States Trade Representative and the Department of Commerce must ensure effective and timely enforcement of Section 301 remedies levied on Chinese vessels calling on U.S. ports and must work to ensure that these proceeds directly accrue to U.S. shipbuilding investment needs. Once passed into law, the Maritime Trust Fund should serve as the primary vehicle for transferring the Chinese 301 duties to the build-out of U.S maritime power.

Maritime Statecraft presents an opening for the United States and its maritime partners to strengthen the foundations of coalition seapower and rebalance defense burden sharing at the same time. Investments by allies in shipbuilding in the United States is one now-proven avenue. The South Korean government in particular leveraged our engagement with its shipbuilders and trade ministry to develop its Make American Shipbuilding Great Again proposal, which proved instrumental to Seoul’s success in recent tariff negotiations. The Asia Pacific Economic Community (APEC) summit in Korea this year presents further opportunity to build on the accomplishments to date through deeper investment in shipyards and secondary shipbuilding suppliers in the United States, translating the Korea Development Bank’s promised $150 billion in shipbuilding loans and loan guarantees from paper promises into steel and concrete on American waterfronts. A presidential visit to a shipyard in Korea on the sidelines of APEC, like President Lee’s visit to the Hanwha Philly Shipyard in July, would offer a firsthand view of what Korean investment can do to revitalize the U.S. shipbuilding industry and workforce. It would also showcase the tremendous talent that the United States should incentivize to come to American shipyards with their skills and best practices. There are several steps the administration can take on devising more effective and collaborative visa and immigration programs to facilitate the entry of the managers and technical experts needed to train the U.S. shipbuilding workforce.

Beware the Rocks and Shoals

There are nevertheless challenges ahead. The biggest immediate risk is the continuing allure of foreign outsourcing that some in the national security establishment see as a quick fix to the nation’s naval shipbuilding woes. An attempt by the administration to go around Congress’s clear wishes, either now or in the future, would derail a shipbuilding strategy embraced by both political parties and instead put a restoration of American seapower out of reach. Outsourcing U.S. government shipbuilding abroad, even temporarily, as the administration has indicated it plans to do with U.S. Coast Guard icebreakers, would surrender the United States’s most powerful source of leverage for a negligible short term gain while undermining the business incentive for world-class shipyards to follow through on investing in America.

A related outsourcing challenge that can be quickly corrected with executive action are the loopholes that allow U.S.-flagged vessels receiving MSP stipends and carrying government preference cargo to be maintained and repaired in China, instead of at underutilized U.S. repair yards. This corrosive practice aids the Chinese maritime industry and introduces a security risk to vessels that the Department of Defense depends on while denying U.S. based shipyards critically needed contracts.

Over the medium to long term, a new and growing risk to the administration’s ability to carry forward the shipbuilding priorities it shares with its predecessor is its increasingly coercive approach to trade and foreign investment, as well as its aggressive immigration enforcement actions. The recent immigration raid on Hyundai Motor’s electric vehicle plant in Georgia could frighten off firms from making new investments in U.S. shipbuilding or completing previously-pledged commitments. Its brusque treatment of South Korean engineers, who had entered the country legally to support domestic American electric car manufacturing, damaged South Korean popular perceptions of the United States as a safe place to work. Indeed, the Hyundai Motor action was starkly incongruous with successful Administration efforts just weeks prior to obtain major South Korean commitments to help revive the American maritime industry. Perceptions matter, as those much needed and welcome commitments will ultimately require the recruitment of large numbers of skilled South Korean managers and engineers to move to the United States.

During our engagements with global shipbuilding executives on investing in America, the Koreans in particular asked whether they would be treated fairly on a level playing field as their prospective U.S. competitors, or if instead they would be regarded as foreigners and treated as second-class citizens. We assured them, as we did others, that by investing in the United States and setting up fully compliant U.S. subsidiaries, they would indeed be treated as any other U.S. company according to the rule of law, with access to the same certifications, security clearances, and opportunities to compete fully and fairly for Navy contracts. This was a key catalyst for their decision to enter the U.S. market as forcefully as they have.

The American tradition of a welcoming business climate under the rule of law that values direct foreign investment and participation must continue. Strategic industries such as the maritime sector must be supported by Administration policies that do not dissuade but rather incentivize world-class corporations, experts, and workers to come to America—particularly from long-standing allies that share our democratic values such as South Korea, Japan, Canada, Italy, Australia and Finland. If the administration can keep off these clearly marked rocks and shoals, it has the opportunity to follow through on achieving the rewards for the U.S. Navy and maritime industry that Maritime Statecraft can make possible.

For too long, policymakers of all political stripes have neglected the cornerstone of American power, which is its seapower. Through diligent effort, Maritime Statecraft has become a bipartisan movement, and has created the largest market opportunity in the U.S. maritime sector in half a century. America’s maritime renaissance is just getting started. Its success depends on a sustained, long-term recognition that for the United States, maritime strategy is grand strategy.

Steven V. Brock was appointed by the White House as the Senior Advisor to the 78th Secretary of the Navy, where from 2022 to 2025 he served as a chief strategist and key implementor of the Secretary’s highest priorities, including as a principal architect of Maritime Statecraft. A former member of the Senior Executive Service and retired U.S. Navy Captain, he currently is the Co-Founder and Managing Partner of Del Toro Global Associates.

Hunter Stires served as the Maritime Strategist to the 78th Secretary of the Navy, where he was recognized for his work as one of the principal architects of the Maritime Statecraft strategy. He serves as the Project Director of the U.S. Naval Institute’s Maritime Counterinsurgency Project, a Non-Resident Fellow with the Navy League’s Center for Maritime Strategy, and the Founder and CEO of The Maritime Strategy Group.

Featured Image: Port of Jakarta, Indonesia. (Photo by Tom Fisk via Pexels)

Call for Articles: Should the U.S. Surface Warfare Community Specialize?

Articles Due: December 8, 2025
Week Dates: January 5-9, 2026

Story Length: 1,5000-3,000 Words
Submit to: Content@cimsec.org

By Dmitry Filipoff

The U.S. Surface Warfare Officer community has operated on a generalist career path since 1899. SWOs are responsible for matters of both operational and material readiness, while the surface fleets of other navies, as well as some other U.S. naval warfare communities, have specialized career tracks. While SWO Warfare Tactics Instructors specialize in specific warfare areas, the vast majority of Surface Warfare Officers have no distinct specialization.

U.S. SWO career paths compared to other naval warfare communities and surface fleets. (Source: GAO study, “Actions Needed to Evaluate and Improve Surface Warfare Officer Career Path,” June 2021.)

The career path of a community holds major implications for that community’s ability to raise its warfighting standards, and sets the limits of what knowledge and skill can be reasonably expected of its officers. A 2021 GAO study surveyed SWOs on the topic, and found that 65 percent believe specialized career paths would best prepare them for their duties, while 16 percent believed the current generalist model is best. That same year, the Surface Warfare Officer Leadership Enhancement Act was proposed by members of Congress and included specialized career tracks.

Arguments in favor of the generalist career path often claim it facilitates cross-functional expertise that better prepares SWOs for higher levels of responsibility. Arguments for specialization often claim that technical and tactical matters have reached a level of complexity that outstrips the ability of generalists to effectively keep pace with, resulting in officers who are too stretched thin to achieve higher readiness across multiple areas.

Should the U.S. Surface Warfare Officer community specialize? Is the generalist career track effectively pacing the threat environment and the growing complexity of surface platforms? How does the generalist track compare against the specialized tracks of other warfare communities and surface navies? Authors are invited to consider these questions and more as they weigh in on the SWO specialization debate.

Send all submissions to Content@cimsec.org.

Dmitry Filipoff is CIMSEC’s Director of Online Content. Contact him at Content@cimsec.org.

Featured Image: PACIFIC OCEAN (Nov. 12, 2017) The guided-missile destroyer USS Chafee (DDG 90), right, leads USS Stethem (DDG 63), the guided-missile cruiser USS Princeton (CG 59) and USS Sampson (DDG 102) while transiting in formation. (U.S. Navy photo by Mass Communication Specialist 3rd Class Cole Schroeder)

Fostering the Discussion on Securing the Seas.