While no longer making regular headlines, the stand-off over the Scarborough Shoal/Panatag Shoal/Huangyan Island continues. Since April 10th both China and the Philippines have maintained a presence in the area, but one limited to civilian agencies – the Philippines Coast Guard on one side, and the Chinese Maritime Surveillance agency on the other.
Rather than trading literal broadsides, China and the Philippines have fought this dispute mostly through the figurative variety in the diplomatic and economic spheres. Philippines President Benigno Aquino suggested exploring joint ventures in the area and sent envoys to Beijing to attempt to resolve the crisis. China meanwhile issued travel advisories for the Philippines, halted tours, scaled back commercial flights, and quarantined incoming Philippine bananas on pest-control grounds.
Both nations have issued fishing bans on the Shoal area in the past week. The Chinese most likely issued the ban because their own fishermen will stay away until monsoon rains abate in the fall, and the stay-behind surveillance ship snow have a pretext in the ban for enforcement. The Philippines, meanwhile, supposedly issued their own ban in order to protect depleted fishing stocks, but this adversely affects the economies of local fishing communities that depend on fishing the Shoal grounds year-round to make their livelihoods.
Making their case.
With personal financial stability and pride at stake, it’s no surprise that civilians at times seem readier to push the situation towards a conflict than the two nations’ governments. In addition to the wide-spread nationalism (and minor protest rallies) whipped up on both sides and given voice in online forums, some 20 protestors and camera crew planned to make the case for the Philippines by setting up a protest on the shoal itself. They were persuaded by President Aquino to allow the government negotiators in Beijing a chance to achieve a constructive outcome.
Despite what my colleague believesabout the benefits of the U.S. sitting on the sidelines of the U.N. Convention on the Law of the Sea, the Scarborough Shoal stand-off is an apt example of how not having ratified the treaty can hamstring the U.S.’ ability to bring pressure to bear on another country (China) for failing to live up to its treaty obligations in pursuance of a peaceful and diplomatic resolution. For while the Philippines is building a case for the International Tribunal for the Law of the Sea (ITLOS), one of the UNCLOS conflict-resolution mechanisms, China, another signatory, refuses to abide by any rulings of the tribunal.
With the stand-off as a backdrop, both sides are expanding their naval forces. The Philippine navy is set to take possession of another U.S. Coast Guard vessel Tuesday, the ex-USCGC Dallas, of the same type as its current flagship, the BRP Gregorio del Pilar. The Chinese Maritime Surveillance administration is also rapidly expanding in numbers (h/t Chuck Hill – CGBlog.org). This is the agency that intervened at the Shoal and prevented the Philippine navy from arresting the Chinese fisherman whose discovery began the current stand-off. While a nation with an expansive coastline and far-flung fishing interests has legitimate needs for a competent coast guard, the continuing Scarborough Shoal stand-off is just one more illustration that ships of this agency are enforcers of state policy, and Chinese maritime state policy has been rather uncompromising of late.
I had the privilege of today attending a debate at the Center for National Policy on “Asia and the Future of American Strategy.” (the audio and video are included in the link and I encourage readers to check it out). It featured friend of the forum Cdr. Bryan McGrath (Ret.), Dr. T.X. Hammes, Col, USMC (Ret.), and free cookies.
Dr. Hammes described the occasion for the debate as the dearth of strategic thinking over how the U.S. would actually prosecute a war against China should it find itself in the completely undesirable position of being in one. He said the “Pivot to Asia” had not been accompanied by deep strategic thinking, and that misunderstandings over the Pentagon’s “AirSea Battle” has “sucked the air out of the room” for that discussion. To the point, over at the Brookings Institute this morning, the Chief of Naval Operations, Adm. Greenert said that AirSea Batte is “a concept, a way of thinking things through, a conceptual approach to establishing access.” In other words, something closer to a Sun Tzu-esque guiding principle than a fully fleshed-out strategy.
With the Pivot, the spotlight is on Asia. With the AirSea Battle the U.S. knows the main actors it intends to cast. But they roles they’ll play, and how they’ll work together are unclear. Dr. Hammes laid out a summary of the thesis of his article “Offshore Control: A Proposed Strategy, available in the Infinity Journal. He argued that by building defensive capabilities and defensive alliances along China’s first two island chains, from Japan through Malaysia, and focusing on a war of economic attrition (establishing a maritime exclusion zone, and conducting maritime interdiction ops and submarine warfare to enforce it) the U.S. could forgo the need to develop and deploy deep-strike penetration capabilities. This would, in the event of a conflict, help negate the Chinese focus on anti-access/area-denial by effectively ceding the areas within their range (for the time being) and establishing “offshore control” to bring the Chinese government to the negotiating table.
There is much merit in this approach, and I am thankful for the bold attempt at a strategy. I plan on taking up the gauntlet thrown down Dr. Hammes in a more in-depth post – if not to develop my own divergent strategy, then to at least hopefully help move the discussion forward.
For now, these are some of my own initial thoughts along, with some of the counterpoints that Bryan did a good job in bringing forth:
To deter, defeat, or bring together.
1. Dr. Hammes took as a starting point that the U.S. has been drawn into a war with China, and from there proceeded to list the ends, ways, and means to bring it to a conclusion. The means derived from this strategy were primarily those that would support the defense of the island chains and prosecute the economic war. But are these the same means one would develop if the mission was focused instead on deterring war? Bryan’s main point of divergence was along this line, as his core concepts: “Presence, Assurance, Deterrence, Power,” may be better served by the higher-end assets Dr. Hammes hopes to cut to find cost savings. In a stand-off over any particular piece of rock, is China more likely to begin a conflict if it (or a over-ambitious on-scene commander) believes it can forcefully seize the immediate objective? The tools that would allow the U.S. to win a long, drawn-out conflict are not necessarily the same as those that would effectively deter it from beginning in the first place.
The difficulty of determining this lies in the difficulty of determining how China would enter into a conflict with America. Most probably it would not be a decision so much as a stumble – a minor squabble with an American ally that through human error ends in bloodshed and a refusal to back down. But there are many possible variables. So if China didn’t think it was entering into conflict, the knowledge that America had an effective strategy for ending it on its own terms might not deter China – but then again neither might a nearby aircraft carrier if China doesn’t expect it to come to the aid of a beleaguered friend.
2. In order to bring the conflict to a close, Dr. Hammes’ strategy relies on a measure of China face-saving since the conflict would undoubtedly generate high-pitched nationalism in the country. As a reporter for the Asia Times detailed on Tuesday on China’s current stand-off with the Philippines:
many common Chinese people are inclined to take a harder line on the dispute than their government itself. I recently asked a Chinese friend about the ongoing dispute, and he, who declined to be identified, told me “Everyone wants to go to war with the Philippines. They say the government is being too weak.” I asked him why a dispute over a small island has taken on such significance. He said, “Chinese people care much about face, and the Philippines is a small country.”
It is unclear how a face-saving measure would be possible if the dispute begins with a territory grab, short of allowing the Chinese to maintain their new possession. Sure, there’s room for clever diplomacy, perhaps both sides agreeing to submit a claim for international resolution, but a focus on limited capabilities to serve limited aims removes the ability to enact higher psychological costs (letting the population see the full impact of war), if it continues to push the government to not back down from the initial claim or cause of the conflict. This is not to say it’s not worth the trade-off, or that strikes “going downtown” would be productive, but as Bryan pointed, the benefit of the option should be considered before it is given up.
3. The importance of allies and world opinion plays a heavy role in this strategy. While the U.S. can supply hardware, maintain bases, and jointly operate all it wants with its allies in the region, when the chips are down, it will come down to the specifics of the conflict to determine which way the allies go. The economic consequences of cutting off trade with China will be economically disastrous for not only America and China, but America’s allies as well. As Dr. Hammes admitted, China’s strategy is to attack America’s alliances, so you can bet it would try to exploit reluctance to fulfill military commitments. It may be hard for South Korean leaders to risk their nation’s military, economic livelihood, and subsequent constituents’ ire over a conflict escalating from a fishing dispute in say Malaysia.
In review.
4. Similarly, the backlash against the U.S. from friends and partners around the globe could be immense if the U.S. loses the public relations battle over the necessity for the economic disruption. There would be hostility at the intrusive enforcement no matter the length, and its legality would be questioned as there would be no Security Council resolutions since China is of course a veto-wielding member of the Security Council. The need to interdict overland routes in South East Asia in countries unwilling to sign on to the effort could also pose enormous challenges. It is unclear how the U.S. would be able to maintain its position for long if the end does not appear in the near-term, but much again depends on the circumstances.
5. U.S. domestic pressure may become equally, quickly tired. If it is “only” an ally that has suffered a lose of territory or lives there may be a temptation to cut our losses. I would not be surprised to hear voices ask “is it really worth it?” This could happen no matter the strategy, but could be magnified if the fight is portrayed as passive. Conversely, if the lives of Americans have been lost there could be enormous pressure to “go downtown” from the start, and again especially if the pace of the conflict were to drag. What may start as a calculated strategy to maximize American defensive advantages could be turned into a campaign of power projection by overwhelming domestic pressure, only without the capabilities to do it effectively.
5. Lastly, the enemy gets a vote. Part of Dr. T.X. Hammes’ strategy includes broadly advertising both the defensive nature and general concepts of the plan. While Kurt Albaugh in an earlier post on LCS talked about thebenefits of clarified intentions, the Chinese would nonetheless begin to focus their efforts on developing effective counters for the strategy and strive to keep them far from the public eye.
This is a great start to thinking about our strategic posture in Asia. Despite the above criticisms, I found much to commend Dr. Hammes’ strategy. To their credit, Dr. Hammes and Bryan both admit they don’t have all the answers, and I’ve shown so far I only have questions, but I look forward to the continuing discussion.
Two quick videos from Al-Jazeera English (which this week was kicked out of China) portraying two of the most important motivators in the scramble for territory in the South China Sea, oil and food. In the first, China is demonstrating increased deep-sea drilling know-how, which may mean a near-to-medium-term increase in unilateral oil exploration and drilling in contested waters.
The second video shows the impact of the stand-off at the Scarborough Shoal on Filipino fishing villages in the area.
My esteemed colleagues Kurt Albaugh and Matt Hipple made some interesting arguments about the U.S. Navy’s Littoral Combat Ship (LCS) in the past two days, although I disagree with each in different ways. At the risk of drowning our readers in the LCS debate, I’m going to make some brief remarks of my own and defer my own full analysis until I’m conflict-of-interest free, just so we can get it out of our system.
Mr. Albaugh highlighted a lot of good points about LCS. LCS is not meant to be the concept vessel formerly known as streetfighter and does a good job fulfilling a lot of low-intensity missions and niche combat roles. A less-threatening platform makes it easier to operate with partners in places like Africa, where cooperative engagement is more law-enforcement focused. And, as the Chinese and Philippine navies demonstrated by pulling out in favor of civilian vessels in the Scarborough Shoal, low-end ships can help ease tense stand-offs and prevent misunderstandings from escalating into conflicts. Few would like to see the U.S. and China in a dust-up, so there are benefits to be gained from the U.S. demonstrating to its partners a commitment to peacefully resolving maritime incidents.
However, I disagree with the argument that forward deploying only weak vessels will prevent China from hostility. As commentor Chuck Hill noted, being inoffensive does not always prevent aggression. In dealing with state actors like China with a “Realist, zero-sum view of the world,” more capability is likely a greater deterrent of aggression than a perception of weakness. While deploying only low capability ships in sensitive areas would limit China’s ability to claim a menacing U.S. naval presence as pretext for action, it would not prevent China from taking that action.
In addition to soft power missions like Pacific Partnership and America’s commitment to its value system, the influence the U.S. maintains in the Asia-Pacific region is in large part derived from its partners’ perceptions of defense assistance credibility. In a region with a rising power with uncertain intentions, purposefully choosing weakness lessens the United States’ influence with friends and potential foes alike.
Two of a kind of a sort.
The good news is I continue to disagree with Mr. Albaugh. LCS can actually be used as an offensive asset, clearing the way for power projection. And I disagree with Mr. Hipple that the ship was designed without a purpose or strategy in mind. The very example of China’s focus on anti-access/area-denial (A2/AD) capabilities are what drove LCS’ design. The three official mission packages – anti-submarine warfare, surface warfare, and mine-countermeasures – are all meant to fill counter-A2/AD capability gaps. And the ship itself, with its shallow draft, is meant to open access to U.S. forces in precisely that area of congested waters, the littorals, where most hostilities are expected to take place. This is the reason just purchasing multiple HSVs, as Juramentado and Mr. Hipple suggested, would not work. It is the same reason the National Security Cutter would not work.
This is not to say LCS can perform every mission of a destroyer or frigate – but that’s okay, that’s not what the Navy meant it or needs it to do. Nor is LCS perfect. Rather than risk-averse organization Mr. Hipple portrays, if anything, the Navy took too much risk on immature technologies for LCS’ mission packages, as Juramentado suggested. Budgets and politics also played a role in the program’s history. And sure, I would love to see a better anti-ship cruise missile, but this is a failing across the entire U.S. Navy, not confined to LCS. Learning from experience, capitalizing on feedback, and tweaking things like manning and mission package equipment will help.
There are still wrinkles in the LCS program, but a question of the role of LCS within the U.S. fleet remains only if the technologies that enable the originally intended missions do not come to fruition. That is no small wrinkle, but it is a different one than finding a strategy.
