Details of the proposed AUKUS submarine deal to be announced next week in San Diego are leaking out all around the world. It seems that it will be much more complicated and expensive than intended at the outset of the path to the Holy Grail of an “optimal” solution. Already there are ominous signs that the three countries cannot even harmonise their rush into PR to launch the program.
Reflecting the reaction of a growing number of gobsmacked Australians to the extraordinary explosion of rumoured detail of the tripartite project, one American commentator has already labelled the tripartite AUKUS project a looming “Goat Rodeo”. For which Google provided the following explanation : “a slang term for something going totally, unbelievably, disastrously wrong, and there’s nothing left to do but to sit back and watch the trainwreck. In other words, a goat rodeo is a chaotic situation, fiasco, or, more vulgarly, a s…show.”
The claimed details of the project have been well covered in the media but what do they mean?
Sovereignty
A word in which Prime Minister Albanese has come to place great faith – and avoid others like “dependency” which has been expunged from the discussions. In a TV interview in India, Albanese has asserted that “Australia will retain, absolutely, our sovereignty — absolute sovereignty, 100 per cent. it is very important [for] Australia, as a sovereign nation state — and that’s something that’s respected by all of our partners as well.” It is arrant nonsense to claim “absolute” sovereignty when our geostrategic interests have become so enmeshed with those of the US – and have been for some time. Let us not forget how we needed the US to weigh in with Indonesia before we launched the East Timor operation. Or more recently when Julia Gillard folded to US pressure for the rotational deployment of US Marines and greater USAF use of airfields in Northern Australia and our Defence force posture plans in return for a visit by President Obama. And so this has developed over subsequent years with embedment of senior Australian defence officers in the US IndoPacific Command in Hawaii and elsewhere, our increasing dependence on the US dominated Five Eyes intelligence network (despite some of its failures) and, of course, our ready participation in the disastrous US controlled “coalitions of the willing “ in Afghanistan and Iraq. And the conga line of US service and Pentagon chiefs which has graced our shores in the past year with their megaphones proffering “advice” on Australian strategic policy and defence procurement . Imagine if any other foreign country had done this in Australia with the DSR and submarine project underway !
Even without that background to just how “absolute” our sovereignty has not been, the details of the project definitely take this a significant step further. It is here where the spin from the US and Australia has already diverged. Defence Minister Marles has the temerity today to posit that there will not be any submarine “capability” gap because the Collins class subs are still very much in operation and will be around as we wait for the first of the new submarines to become operational. (The Collins class, of course, does not have anything like the operational capability or weapons system of the new submarines).
But the US leaks have argued that the capability gap will be covered by US nuclear powered submarines expanding their current operations by regular visits in our region to Stirling in WA. The USN has long been keen to establish some homeporting arrangements there for its nuclear powered submarines and aircraft carriers. US media are also reporting that the early US Virginia class submarines to be delivered would be under US command with that gradually phasing out to mixed crews before eventually being run by the Australians. So Australia will have absolutely no sovereignty over the USN submarines in the first 15 years or so – and probably only very limited consultation with the Americans about their operations – which naturally are always so tightly held. For the following 10 years or so the command and control lines will be at best messy until the second set of submarines emerge. The British will want part of that action! So Albanese could well end up being the one with the credibility gap! As another US commentator has rightly pointed out that will be for politicians years down the track to sort!
Where will they be built?
Another key question on which there is some diverging spin. In keeping with his overall political strategy, Albanese has presented the deal so far as being a major plank in his efforts to boost manufacturing and R&D in Australia (and help argue the case for the huge budget damage the submarines alone will do). From the US side the push has been to emphasise how big a contribution the construction ( seemingly of all 5 or so) will be to US manufacturing and shipbuilding in particular. Some of the leaks have pointed out that very significant Australian funding will be required to US shipbuilders to expand their capacity to manufacture the Australian submarines. There has also been some persistently strong arguments in the US that the deal will exert too much pressure on US industry’s capacity.
A recent article in Foreign Policy summarised these concerns :
“But is it going to work? That’s been the major question all along through phase one of AUKUS, which has been beset by sticky U.S. export control and intelligence-sharing rules that have depth-charged key features of submarine design. First, the United States has to expand its own shipyard output to send five nuclear-powered submarines to Australia as well as make sure Congress is on board. Second, even if all goes to plan, the land Down Under will be operating a Frankenstein-like Navy with nuclear subs from two different countries, a potential nightmare for training and spare parts—and presumably, and most importantly, reactor maintenance and little details like that.”
Then there is the British spin. It seems clear from Prime Minister Sunak’s exuberant reaction to the leaks that they have probably received more out of the deal than they might have expected. No doubt BaE (in which the UK Government has a major interest and which also has bought out ASC in Adelaide) which runs the Astute class construction program in Barrow has been a major player in what appears to have been a relatively recent improvement in their prospects. This is also what Peter Dutton’s curious intervention would suggest as the Astute track record has been littered with failures, delays and cost overruns. As the local Tory MP for Barrow indicated to 730 Report there is clearly an expectation of substantial design and construction work there. How much will be actually undertaken in ASC is unknown – as also how the nuclear propulsion module will be integrated. No doubt also there is a longer term British interest in using its involvement in this project as a stepping stone to its fantasy of rebuilding a significant East of Suez power presence.
How much will it all cost?
Without confirmed details this cannot be estimated. But there is a consensus that it will well exceed not only the original French submarine but go well beyond.
Is the Virginia class submarine the best answer ?
In his rush to announce his preference for the Virginia class submarine over a new British design, Dutton placed weight on it being a simpler solution given that it was a proven design. But as I pointed out earlier this year in these columns (Nuclear submarines: from “optimal” to “the best they can get”) the Virginia has been the subject of detailed criticism from the Congressional Research Service and the GAO over its maintenance problems.
“Just last December the US Congressional Research Service issued a very detailed report (Navy Virginia (SSN-774) Class Attack Submarine Procurement: Background and Issues for Congress) outlining the significant delays in SSN repair and maintenance. It contains frequent references to serious concern expressed by a range of US Admirals with command responsibility for submarines. There have been similar criticisms from the GAO in recent years about the poor performance on SSN maintenance reducing significantly the already deficient number of SSN’s the USN can deploy.”
Mack Williams is former ambassador to the Republic of Korea.
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