Landing Zone, 2.15.17
By Alan W. Dowd
We
have heard much about the policy differences separating the Trump and
Obama administrations, but little about areas of common ground. One such
area appears to be their convergent approaches to China’s attempt to
annex the South China Sea by constructing artificial islands atop reefs
in international waters.
To
date, Beijing has built up some 3,000 acres of instant islands in the
resource-rich region. In response, the Obama administration began
conducting freedom of navigation operations (FONOPs) around these
made-in-China islands in 2015. There is every indication the Trump
administration intends to expand on these operations and thus defend a
rules-based order in the Asia-Pacific.
Before
getting into some of the specifics of South China Sea FONOPs, it’s
important to detail why the United States and its allies are engaging in
this mission.
Simply put, what China is doing undermines the peace and prosperity of the Pacific.
China is laying claim to 90 percent of the South China Sea based on a map created by Chinese cartographers in 1947, flouting international norms
and turning reefs hundreds of miles from its territorial waters into
military outposts.
Beijing’s goal: to control the resource-rich South China Sea and muscle the United States out of the Western
Pacific. As Prime Minister Shinzo Abe of Japan puts it, China is trying
to turn the South China Sea into “Lake Beijing.” No doubt reflecting the
views of his government, Chinese Vice Adm. Yuan Yubai says, “The South
China Sea, as the name indicates, is a sea area that belongs to China.”
(By that logic, the Gulf of Mexico belongs to Mexico and Indian Ocean to
India.)
Bolstered by its instant islands, China is asserting these claims in fait accompli fashion. Satellite images detail Beijing’s brazen island-construction operations. These instant
islands have obvious military applications. According to the U.S.-China
Economic and Security Review Commission, “China appears to be expanding
and upgrading military and civilian infrastructure – including radars,
satellite communication equipment, antiaircraft and naval guns, helipads
and docks – on some of the man-made islands.” One of the islands has a
10,000-foot airstrip – big enough for long-range bombers and
fighter-interceptors.
True,
Beijing is not trying to lop off part of Venezuela (like Kaiser Wilhelm
II in 1902), or annexing the Sudeten in the heart of Europe (like Adolf
Hitler in 1938), or declaring Kuwait “Province 19” (like Saddam Hussein
in 1990). But the principle is the same. As they bully weaker neighbors
and dot international seaspace with man-made islands, China’s leaders
are taking what’s not theirs. The lesson of Munich teaches that it’s
better to confront such aggression than to appease it.
American policy After months of warning Beijing that the U.S. Navy would challenge
China’s illegal bid to seize a large swath of the South China Sea, the
Obama administration ordered the destroyer USS Lassen in late 2015 to defend freedom of the seas and to sail within 12 miles
of an artificial island built by China on Subi reef. Beijing called the
operation “dangerous and provocative.”
Beijing’s
assertions notwithstanding, there’s nothing new or provocative about
the Navy challenging this sort of lawlessness. America has been keeping
the open seas, well, open for 215 years.
In
the 18th and 19th centuries, the Barbary States required ships
traveling near their waters to pay tribute to guarantee safe passage.
The United States complied – until Thomas Jefferson became president. He
initially proposed an anti-piracy coalition with Europe “to compel the piratical states to perpetual peace.” When
that didn’t work, Jefferson concluded, “It will be more easy to raise
ships and men to fight these pirates into reason, than money to bribe
them.”
As
the Congressional Research Service reports, between 1801 and 1870, U.S.
forces waged a far-flung war against piracy – and for freedom of the
seas – in Tripoli, Algiers, Greece, Ivory Coast, Hong Kong, Sumatra, the
Caribbean and the Gulf of Mexico.
In
the 20th century, President Woodrow Wilson’s 14 Points called for
“absolute freedom of navigation upon the seas.” President Franklin
Roosevelt called “freedom of the seas” an “American policy.”
Since 1979, U.S. forces have challenged excessive airspace and coastal claims around the world under the Freedom of Navigation program. Thus, when Libya’s Muammar Qaddafi declared the Gulf of Sidra as his own, the Carter administration ordered U.S. warplanes and warships into the area from time to time, although
it suspended the exercises during the Iranian hostage crisis.
When
the exercises recommenced at the beginning of the Reagan
administration, Qaddafi sent his air force into international airspace
to challenge the Americans. The Navy responded with deadly force and
made it clear to Qaddafi that there would be no payoff for disregarding
international norms – only costs.
Likewise,
when Iran began attacking commercial ships in the Persian Gulf during
the Iran-Iraq War, President Ronald Reagan ordered Kuwaiti ships
reflagged with the Stars and Stripes and had U.S. warships escort
Kuwaiti vessels. After an Iranian mine ripped through a U.S. ship in
international waters, Reagan launched a series of military strikes
against Iran. “By the end of the operation, U.S. air and surface units
had sunk, or severely damaged, half of Iran’s operational fleet,” a Navy
report recalls.
Burdens Today, 90 percent of global trade travels by sea, and $5.3 trillion of global trade passes through the South China Sea annually (including $1.2 trillion in
goods headed to or from the United States). This doesn’t happen by
accident or by magic. The burden of keeping the sea lanes open –
discouraging encroachment and illegal claims, deterring bad actors,
fighting piracy, clearing vital waterways and chokepoints – largely
falls on the Navy. In 2015, the most recent year with available data,
the U.S. military made “operational assertions” against excessive
maritime claims of 13 nations. China was at the top of the list.
The Trump administration seems ready to grab the baton:
•
President Donald Trump worries that China is building “a military
fortress” in the South China Sea and vows to build the Navy back to 350
ships. Such a buildup is needed: “For us to meet what combatant
commanders request,” according to former Chief of Naval Operations Adm.
Jonathan Greenert, “we need a Navy of 450 ships.”
•
Defense Secretary James Mattis has expressed support for continued
FONOPs in the South China Sea, declaring, “The bottom line is that
international waters are international waters and we have got to figure
out how do we deal with holding on to the kind of rules that we have
made over many years that led to the prosperity for many nations, not
just for ours.”
•
Secretary of State Rex Tillerson adds, “We’re going to have to send
China a clear signal that, first, the island-building stops. And second,
your access to those islands also is not going to be allowed.”
•
The Pentagon plans to begin sailing within 12 nautical miles of
artificial islands Beijing has illegally built near the Spratly and
Paracel island chains, Navy Times reports, adding, “The plans are heading up the chain of command for approval by President Donald Trump.”
Already, America’s allies are sending clear signals about their commitment to freedom of the seas.
Japan
plans to expand its naval activity in the South China Sea by conducting
joint patrols with the Navy as well as exercises in international
waters claimed by China. “I strongly support the U.S. Navy’s
freedom-of-navigation operations, which go a long way to upholding the
rules-based international maritime order,” Japanese Defense Minister
Tomomi Inada says. “Japan, for its part, will increase its engagement in
the South China Sea.”
Australia conducts air patrols over the South China Sea to ensure freedom of the seas and skies. The Australian military reports that it has increased the number of patrols and that China challenges
“nearly all” of its flights in the area. Royal Australian Air Force Air
Marshal Leo Davies says his nation is committed to “building and
encouraging a rules-based global order” and “will work closely with our
allies, partners and other like-minded air forces to determine how we
can make a practical contribution to ensuring freedom of navigation.”
Calling
the passage ways of the South China Sea “the main arteries” of
international trade, Prime Minister Narendra Modi says India “supports
freedom of navigation based on international law.”
Rhetorical
and material support for FONOPs in the South China Sea is also coming
from outside the region. French Defense Minister Jean-Yves Le Drian told
attendees at a 2016 security conference that France would encourage the
European Union to carry out “regular and visible” FONOPs in the South
China Sea. “If we want to contain the risk of conflict, we must defend
this right, and defend it ourselves,” Le Drian said. “Several times per
year, French navy ships cross the waters of this region, and they’ll
continue to do it,” Le Drian explained,
noting that France is committed to “sailing its ships and flying its
planes wherever international law will allow, and wherever operational
needs request that we do so.”
Britain’s
ambassador to the United States, Kim Darroch, vows that his nation will
“play our part” in the Pacific. Toward that end, Britain announced in
December plans to fly fighter aircraft through disputed parts of the
South China Sea, and Britain plans to routinely steam its new aircraft
carriers to the Pacific. “We absolutely share the objective of this U.S.
administration, and the next one, to protect freedom of navigation and
to keep sea routes and air routes open,” Darroch said late last year.
Enforcing the law If they want to prevent Beijing from becoming the self-appointed
gatekeeper of the sea lanes in between the Philippines and mainland
Asia, the United States and its allies must carry out frequent and
unannounced FONOPs.
Before
the Lassen conducted FONOPs in October 2015, the Navy had avoided
sailing or flying near the disputed territories claimed by China for
some three years. Equally troubling, there was a five-month gap between FONOP maneuvers in the South China Sea last year.
FONOPs also should be unannounced.
In the weeks leading up to the Lassen’s maneuvers, Washington
publicized plans to steam U.S. ships into and through the waters
surrounding China’s instant islands. Just as I need not notify my
neighbors of where, when or why I will be traveling the city streets,
Washington, Tokyo, Canberra and other capitals are under no obligation
to forewarn Beijing about plans to deploy assets in international
seaspace and international airspace. In fact, doing so implies that
China is owed such a forewarning, which implies that China has a special
prerogative over the areas it claims. It does not.
It
pays to recall that the United States and its allies are doing nothing
more than observing (and enforcing) the law. A U.N. tribunal recently
ruled against Beijing’s outlandish South China Sea claims. If China’s
leaders fail to respect that ruling, the U.S. Navy and Air Force will be
obliged to remind them – repeatedly – that their islands have no
international legitimacy.
Of
course, to carry out such an open-ended operation, America’s military
needs more resources. To deliver those resources, Washington must end
the bipartisan gamble known as sequestration. The defense budget has
fallen from 4.6 percent of GDP in 2009 to 3.1 percent. As China builds
up and builds out, this is the best way to invite the worst of
possibilities: what Churchill called “temptations to a trial of
strength.”