Looking back, a major step for China was its first
deployment of warships to the Gulf of Aden to join an international
counter-piracy effort. The first trio of warships arrived in December 2008, and
a task force has seen a constant presence there ever since
Today it is legally indisputable that the high seas belong
to all. This means China`s navy has as much right to ply the Indian Ocean as
any other nation, even though it might make countries like India feel a
creeping sense of dread. Likewise, it is a well-established fact the People`s
Liberation Army Navy (PLAN) has been sailing in the Indian Ocean far more
frequently in recent years, compounded by fears that Beijing is seeking to
establish new naval bases on the periphery of this ocean.
Yet, is China trying to dominate the Indian Ocean?
Looking back, a major step for China was its first deployment of warships to
the Gulf of Aden to join an international counter-piracy effort. The first trio
of warships arrived in December 2008, and a task force has seen a constant
presence there ever since.
Chinese warships remain despite pirate attacks disappearing
almost entirely in the area. However, such assets have also been used for
non-combatant evacuation operations in Yemen and Libya, plus ships are
available for humanitarian assistance operations. China is understandably
concerned about protecting its sea lanes, the conduits that bring in raw
materials (9.3 million barrels of oil per day, with 44% of Chinese oil imports
coming from the Middle East in 2018) and which simultaneously deliver finished
products to Africa and Europe (20% of China`s GDP comes from exports).
Strategists call these sea lines of communication (SLOC),
and Beijing wants to protect them from threats in peacetime and against hostile
powers in times of tension or war. China`s economic investments continue to
grow, as does the diasporas of its citizens. The Middle East and Africa
comprise an essential part of Chairman Xi Jinping`s flagship Belt and Road
Initiative, and its importance is seen in the fact that Xi has visited the
region 18 times since he gained power in 2012.
Furthermore, there are particular chokepoints along these
SLOCs, locations where shipping is funneled and becomes particularly
vulnerable. The most obvious of these is the Strait of Malacca between
Singapore, Malaysia and Indonesia. Other chokepoints are the Strait of Hormuz,
Bab-el-Mandab (the Horn of Africa) and Suez Canal. China`s interest in the
Indian Ocean region is a product of growing commercial interests, with the PLAN
being handed the task of safeguarding them.
This is not a new concern, for Beijing`s 2015 Defense White
Paper stated that "with the growth of China`s national interests, its
national security is more vulnerable to international and regional
turmoil...and the security of overseas interests concerning energy and
resources, strategic sea lines of communication, as well as institutions,
personnel and assets abroad, has become an imminent issue".
In fact, three critical factors affect how China can project
power, protect its SLOCs and keep chokepoints open. The PLA is acutely aware of
all three, and much effort is devoted to negating current disadvantages.
First is the PLAN`s rather modest presence in the Indian
Ocean, especially compared to powers like India or the USA.
Second is the PLAN`s limited air defense and anti-submarine
warfare capacity. Third is China`s rather limited logistics/sustainment
infrastructure along the Indian Ocean`s periphery. If China is to dominate the
Indian Ocean, if that is its aim, it must address each of the above weaknesses.
Interestingly, the US Naval War College recently published a report addressing
the PLAN`s utilization of the Indian Ocean.
Authored by Jeffrey Becker, the report entitled Securing
China`s Lifelines across the Indian Ocean provides insights into Chinese
ambitions. It summarized China`s predicament as follows: "To address these
challenges, Beijing has already undertaken a series of initiatives, including
expanding the capabilities of China`s base in Djibouti and leveraging the
nation`s extensive commercial shipping fleet to provide logistics support.
Evidence suggests that China may also be pursuing other policy options as well,
such as increasing the number of advanced PLAN assets deployed to the region
and establishing additional overseas military facilities."Becker admitted,
"However, while the PLAN`s ability to operate in the Indian Ocean has
improved considerably, its ability to project power into the region, and defend
access to SLOCs and chokepoints in times of crisis, remains limited."
Addressing each of the three factors in turn, the first was
China`s modest naval presence in the Indian Ocean, with just two warships and a
support vessel on permanent rotation to the Gulf of Aden. Other warships may
occasionally make passage or conduct exercises, plus it is estimated that
Chinese submarines perform just two forays into the Indian Ocean annually on
average.
Nonetheless, Chinese naval exercises west of the Malacca
Strait (but still in the eastern part of the Indian Ocean) are becoming more
common. These have two advantages, familiarizing crews with the area, and
normalizing the appearance of PLAN ships.
It is certainly possible for the PLAN to deploy more ships
there, for it is the largest navy in the world in terms of hull numbers. Becker
quoted one source suggesting "that China is already capable of maintaining
about 18 ships on station fulltime in the Indian Ocean, given the PLAN`s
current force posture".
Senior Captain Liang Fang at China`s National Defense
University has written papers advocating that the PLAN deploy aircraft carriers
there to protect SLOCs. A Chinese carrier group operating around the Horn of
Africa would certainly make a bold statement about Chinese power projection
capabilities, and could provide leverage over nearby countries.
However, it is rare for Chinese experts to directly discuss
any concept of a dedicated PLAN Indian Ocean squadron. The second
aforementioned factor is the PLAN`s limited air defense and anti-submarine
warfare capacity.
Close to home, Chinese warships enjoy support from
land-based missiles and aircraft, plus a heavy concentration of submarines, but
these are luxuries not afforded in distant seas. Such support would be absent
in the Indian Ocean, plus Chinese assets would be within land-based strike
range of potential adversaries like India.
The latter, especially in the Andaman and Nicobar Islands,
is boosting its ability to detect and track foreign submarines and surface
ships. The defensive capacity of Chinese warships is improving, though, The
Type 052D destroyer, for example, has 64 vertical-launch missile cells that can
fire missiles against multiple enemy aircraft.
However, within their first five years of service since
2014, none had deployed to the Gulf of Aden. Significantly, their first foray
with a Gulf of Aden task force occurred in May 2019. Moving on, the third
factor is China`s limited logistics support infrastructure in the Indian Ocean
region. China formally opened a shore-based base in Djibouti on 1st August
2017.
China is not the only country with a military presence in
Djibouti, for France, Italy, Japan and the USA all have military facilities
there, with the Saudis to build one too. China has been expanding the pier at
its Djibouti military base in recent weeks, sufficient to host at least a
four-ship flotilla, including the large Type 901 auxiliary ship.
The future deployment of more advanced weaponry to Djibouti
- such as surface-to-air missiles or anti-submarine aircraft - would indicate
more urgent Chinese intent. Already, one of six berths at Djibouti`s commercial
Doraleh Multipurpose Port is reserved for use by the PLA.
Becker commented on auxiliary ships: "While these ships
could be used to support other vessels in the fleet, given their limited
numbers, and the fact that they were designed to support the PLAN`s future
carrier strike groups, expanding facilities in Djibouti to support Type 901s
may indicate that the base could also host a PLAN carrier strike group in the
future. Indeed, the size and nature of the facilities being built at Djibouti
suggest that the PLAN is establishing the capability to support a carrier
strike group from its first overseas base should it so chose.
"China is well aware of the advantages that new
regional logistics bases would bring, and Pakistan is usually touted as the
most likely location. Becker noted, though, "...At least in the near term,
the likelihood of the PLAN obtaining access to a military facility which it
could use during a conflict remains remote, as many Indian Ocean region
countries seek to maintain a balance in their relations between regional
powers, and appear unlikely to abandon this hedging approach."
One Chinese scholar, Gao Wensheng of Tianjin Normal
University, encourages setting up such Chinese "strategic fulcrum
ports" to enhance logistics support in the region. This topic, often
referred to as the "string of pearls theory", has generated a lot of
heat and noise. Such bases along the coast of the Indian Ocean - whether dual
use or purely military - would undeniably greatly aid the PLAN`s ability to
operate so far from home.
Becker assessed, "Over the past decade, the PLAN has
proven capable of sustaining small groups of vessels in the Indian Ocean for
long periods of time. However, though a three-ship taskforce is sufficient for
the PLAN`s counter-piracy needs in peacetime, defending access to Indian Ocean
SLOCs in a conflict would require a much larger and more sustained force, and
the PLAN has only a limited number of replenishment ships capable of supporting
far-seas operations."
A shortage of replenishment ships (currently eight Type
903/903A and two Type 901 vessels) could force China to utilize its massive
commercial fleet, one of the largest in the world.
Becker indeed noted: "Beijing has already taken steps
so that the fleet can better support PLAN activities. For example, it has
promulgated regulations requiring certain civilian vessels - including
roll-on/roll-off vessels, tankers and container ships - be built to military
specifications, theoretically facilitating their future use by the navy with
few if any modifications.
In September 2016, China enacted the Law of the People`s
Republic of China on National Defense Transportation, which improves the
process for military requisition of civilian transportation assets during
wartime, natural disasters, emergencies or `special circumstances`, both
domestically and abroad."Chinese commercial vessels have taken part in maritime
exercises, meaning that an entity such as COSCO could easily be called upon to
support the PLAN in the Indian Ocean to augment naval capabilities.
Furthermore, Chinese state-owned companies own or operate
port facilities around the region (including Djibouti, Egypt, Malaysia,
Pakistan, Singapore, Sri Lanka and the UAE), and they could provide some degree
of sustainment.
In line with other analysis, Becker concluded:
"...Other than its base in Djibouti, the PLAN does not, at present, appear
to have arrangements with any other country in the region that would allow it
to preposition specialized military equipment or technicians required to use
that equipment, even in port facilities owned or operated by Chinese
state-owned firms. Host governments whose ports do service PLAN vessels during
a conflict, or allow the PLA to preposition military equipment on their
territory, could possibly be dragged into the conflict as a
co-belligerent."
Yet China has slightly improved its posture by developing
more comprehensive naval facilities farther south within China - including an
aircraft carrier base at Yulin on Hainan Island, thus speeding up the PLAN`s
ability to deploy assets to the Indian Ocean. China could also surge platforms
from reclaimed reef bases in the South China Sea, as they can harbor ships and
accommodate aircraft such as fighters, maritime patrol and aerial refueling
types.
This would give the PLA a quicker response to any
contingency in the Malacca Strait, for instance. It would make sense for China
to establish a second overseas military base at the eastern end of the Indian
Ocean, to help defend access to the region.
For many years, locations such as Myanmar have been
discussed. Or even farther east, China`s military relationship with Phnom Penh
has become quite exclusive in recent years. In 2019 there were media reports
that China may have forged an agreement for the PLAN to use a Cambodian naval
base, plus a large and mysterious airport is being constructed in
Cambodia.
Speculation is rife that the PLA could one day use the
latter, even though Cambodia is some 1,000km from the Malacca Strait. Becker
suggested another possibility, that Beijing may simply be content to emulate
the Soviet Union`s past presence in the Indian Ocean. The Cold War power sought
only limited SLOC protection and localized sea denial, as opposed to outright
sea control. This could represent an achievable solution for China too.