After a decade of increasing demands at home and abroad—including support to International Force for East Timor (Interfet) operations—the Royal Australian Navy is stretched thin. But with the recent release of a government defense white paper, it has set course on a modernization and enhancement program.
Since 1990 the Australian Defence Force (ADF) has been busier than at any time since the Vietnam War. In addition to participation in the Gulf War and subsequent sanction enforcement, the ADF has been involved in global and regional peace enforcement, peacekeeping, facilitating peace negotiations, humanitarian relief, and evacuations. In addition, in home waters there has been a notable increase in illegal drug, immigration, and fisheries activities (the latter including in the sub-Antarctic). Most significant was the substantial support to the Interfet operation in East Timor. For most of these operations the Royal Australian Navy (RAN) has played a prime or major enabling role.
These demands have stretched a defense force that has had to operate within a very tight budget and with personnel shortages in many key areas. As a result, the Australian government, after wide consultation with the public on defense issues, on 6 December 2000 released a white paper entitled "Defence 2000—Our Future Defence Force." The most significant defense document for at least a decade, it attempts to realign the composition and focus of the Australian Defence Force to meet current and emerging strategic demands.
"Defence 2000" Strategic Outlook and Objectives
The "Defence 2000" survey of Australia's strategic outlook assessed that the tempo and diversity of ADF activity would continue into the foreseeable future. Australia's primary strategic aim, it states, must be to prevent or defeat any armed attack on Australia. Five strategic objectives are enunciated: (1) ensure the defense of Australia and its direct approaches; (2) foster the security of our immediate neighborhood; (3) promote stability and cooperation in Southeast Asia; (4) contribute to stability in the wider Asia Pacific; and (5) support global security.
To achieve these objectives, "Defence 2000" identified four strategic tasks for the ADF:
Defending Australia. "Defence 2000" reaffirmed the primacy of the ADF capability to defend Australian territory from any credible attack. The approach to this task is shaped by three principles: (1) self-reliance, defending Australia without relying on foreign combat forces; (2) maritime strategy, maintaining the ability to control Australia's air and sea approaches, and (3) active operations, maintaining the capability to attack hostile forces as far from Australia's shoreline as possible.
From the RAN's perspective, the primary goal is to maintain an assured capability to detect and attack any major surface ships, and to impose substantial constraints on hostile submarine operations in Australia's extended maritime approaches. Over the near term (and beyond) the navy will continue to develop capabilities and training processes to accomplish these missions.
Contributions to Neighborhood Security. The second priority for the Australian Defence Force is to be capable of making a significant contribution to the security of Australia's immediate neighborhood. In resisting aggression against Australia's neighbors the ADF needs to be in a position to help these nations defend themselves. The ADF also needs to be prepared to undertake lower level operations, and it will continue to apply recent experience gained from similar operations in training, readiness and sustainment, deployment and support, firepower and mobility, and command and communications. In addition, to remain prepared to conduct combined operations, the ADF will continue the process of engagement and exercises with regional partners.
Supporting Wider Interests. The third strategic task is for the ADF to contribute effectively to coalitions to respond to crises beyond Australia's immediate neighborhood where national interests are engaged. Although participation would be expected to be greater in operations closer to Australia, the ADF will need to have the capacity to make a significant contribution to any coalition deemed appropriate in the wider Asia Pacific region. The navy must therefore maintain high levels of interoperability, especially with U.S. forces.
Peacetime National Tasks. The Australian Defence Force also is required to undertake tasks in support of wider national interests. For the navy such ongoing commitments include (1) security of Australia's coastline, especially from illegal immigration, smuggling, and fishing quarantine evasion; (2) hydrographic work; (3) support of counterterrorist operations;(4) maritime search and rescue; and (5) defense aid to civil community tasks.
In formulating the force structure needed to meet these missions, "Defence 2000" notes that the Asia Pacific region has the world's fastest growth of military capabilities. As a result, without significant investment, there was potential for the ADF's comparative military capability to be degraded.
Defense Capability Plan
An important feature of "Defence 2000" is its comprehensive defense capability plan (DCP) and related funding commitments for the next decade and beyond. Full details remain classified, but the major components of the DCP are contained in the public document.
For the three services there are important capability replacement programs, as well as enhancements to ADF capability that should make it more powerful, mobile, and sustainable. In particular, operations in East Timor highlighted equipment and sustainment deficiencies in the Army and reinforced the importance of a balanced fleet. For the Royal Australian Air Force, "Defence 2000" endorsed the introduction of airborne early warning and control and the replacement fighter, strike, and air-to-air refueling (AAR) aircraft.
For the Royal Australian Navy, the next two decades will bring transformation. The fleet will be better able to operate both independently and in support of coalition or land forces, in open ocean and littoral waters, for sustained periods.
Air Warfare. In recent years, the navy's relative air warfare capability has declined. The decommissioning of the last Charles E Adams (DDG-2)-class guided-missile destroyer, HMAS Brisbane, leaves the navy with just two classes of major surface combatants: six Oliver Hazard Perry (FFG-7)-class guided-missile frigates and three (of eight planned by 2006) Anzac (FFH)-class frigates. Both the DDGs and FFGs are armed with the aging Standard SM-1 missile, and the Anzacs have NATO Sea Sparrow and eventually Evolved Sea Sparrow. The demise of the DDGs also removes three-dimensional surveillance radars and a modest command capability. Support from the air force in the maritime environment has been constrained by the lack of airborne early warning and control and an operational air-to-air refueling capability.
These deficiencies were recognized in "Defence 2000." First, the already approved FFG upgrade will proceed. These vessels are planned to remain in service until at least 2013, with the two younger platforms until at least 2017. Between 2002 and 2007 the FFG will receive the air defense artillery control system (ADACS); upgraded Mk 92 fire control system to Mod 12; eight-cell Mk 41 vertical launch system for the Evolved Sea Sparrow; Link 16; Nulka active missile decoy; Rafael C-Pearl electronic surveillance system; and decoy launcher enhancements.
Second, the antiship missile defense capability of the FFHs will be greatly enhanced to cope with emerging threats. Although composition of the upgrade is yet to be finalized, the first ship will be refitted in 2006-7. The upgrade will likely include a second channel of fire for the Evolved Sea Sparrow; upgrade of surveillance radar; Link 16, a 3-D radar, Nulka active decoy system; infrared surveillance and tracking system; and the very short range air defense missile.
"Defence 2000" acknowledges the need for a long-range air defense capacity within the fleet. The impending end of life of the SM-1 missile will leave a serious gap in the navy's capability. A decision on the SM-1 replacement is expected later this year.
Of more significance, the navy is to replace the FFGs with at least three larger and more capable air defense ships. These ships—with their phased array radar systems, long-range missiles, and command facilities—will be the centerpiece of future navy task groups. The first ship will be operational by 2013. This capability will be enhanced with the introduction of the air force's airborne early warning and control aircraft.
Surface Warfare. Enhancements to the Navy's surface warfare capability already are under way with the fitting of advanced forward-looking infrared and electronic surveillance capability to the FFG's embarked helicopter, the S70B Seahawk. The FFH's helicopter, the SH-2G(A) Super Seasprite, due to enter service by the middle of the decade, also will have this equipment. During the second half of the decade the S70B will receive a mid-life upgrade.
At the same time, the Penguin Mk 2 antiship missile will be added to the inventory and the FFH will be retrofitted with canister-launched Harpoon. These features will add greatly to the navy's versatility in conducting surface warfare, particularly at night and in littoral environments.
Undersea Warfare. A significant upgrade to the navy's undersea warfare capability in the near term is the lightweight antisubmarine torpedo replacement. Although the aging Mk 46 has been updated to Mod 5 standard, the ADF has selected the Thomson Marconi/Eurotorp MU 90 Impact torpedo as the next-generation lightweight torpedo. The replacement will be in service around 2005.
The FFG sonars (SQS 56 and Mulloka) will be replaced during 2002-7 with the Thompson Marconi Spherion MFS. Both classes of surface combatants are to receive an additional low frequency active passive sonar (LFAPS) suite. A LFAPS demonstrator is at sea and a decision will be made on completion of trials.
Submarines. Although the Australian-built Collins-class submarine has experienced a protracted development and service introduction phase, the first of the class, HMAS Collins, recently achieved a major milestone with the successful firing of a Harpoon missile. The past two years have seen many major problems overcome, in particular plant reliability and acoustic performance when submerged at high speed. Very good performance in recent exercises has demonstrated that the class is now at a base level of operational capability.
Problems still exist with full sensor integration to the original combat system. "Defence 2000" states that all six boats will be upgraded to a high level of capability. This will include the replacement of the combat system. To this end the government has fast tracked modifications to two vessels still in the hands of the builder to an interim operational capability. The first boat with the new combat system will be at sea by 2006. This coincides with the replacement heavyweight torpedo for the current Mk 48.
Amphibious Capability. The ADF is on the verge of completing a major enhancement to its amphibious capability, with the mature force being capable of carrying, deploying, and supporting an integrated battalion group. For the next decade the force will consist of two former U.S. Navy Newport (LST- 179)-class tank landing ships (Manoora and Kanimbla, converted to amphibious landing platforms) and one heavy landing ship (Tobruk). Refit and modifications to Manoora and Kanimbla have been extensive and include the addition of a combat medical facility, command center, and aviation facilities. This force, along with the leased fast catamaran Jervis Bay, has been kept very busy supporting operations in East Timor, Bougainville, and the Solomons.
"Defence 2000" details an enhanced amphibious force. By 2007, ship-to-shore operations will be enhanced by 12 marinized troop-lift helicopters. The six heavy landing craft are to be kept operational (life of type extension in progress) until a new successor is obtained toward the latter half of the decade. The Tobruk will be replaced around 2010, and the Manoora and Kanimbla will follow around 2015, probably with ships of similar lift capability. In addition, options to retain access to unique capabilities of fast catamarans will be examined.
Afloat Support. One of the most significant operational limitations for the Navy has been in afloat support. Only the underway replenishment ship Success can deliver ammunition and stores in addition to fuel. "Defence 2000" outlines that the underway replenishment oiler Westralia will be replaced by 2009 and Success in 2015 by ships of the same class.
Mine Warfare. The navy is nearing the end of a major program to reestablish its mine warfare capability. The first two (of six) modified Huon-class coastal mine hunters are in service and proving very successful. These vessels are fitted with Type 2093 variable depth sonar, Nautis IIM tactical data system, Bofors SUETEC Double Eagle mine disposal vehicles, and a minesweeping ability using elements of the AMASS system of towed bodies. In addition, the FFG class is to receive the Thomson Marconi Petrel mine avoidance sonar during its upgrade.
Patrol Forces. "Defence 2000" recognized the substantial contribution to maritime surveillance and enforcement by the navy's Fremantle-class patrol boats. These vessels are at the end of their service lives and are difficult to maintain. The replacement project is under way, with contracts for the 50-60 meter replacement vessels expected to be signed this year for first of class delivery around 2004-5.
Implementation Issues
Like all defense programs, "Defence 2000—Our Future Defence Force" relies on sustained financial commitment. Equally important will be the recruiting and retention of quality personnel—a significant challenge. It is essential that initiatives in "Defence 2000," such as a 2% per annum real growth in personnel funding, have a marked effect.
The Royal Australian Navy will operate in a strategically uncertain and challenging environment for this decade and beyond. The future force structure has been laid out and should be able to carry out the navy's diverse missions effectively. As Chief of Navy Vice Admiral David Shackleton noted, the "government's recognition of the importance of the ADF and commitment to increased funding for both people and equipment means that we can plan our future with optimism."
Commander Pearce is a specialist air warfare officer with 22 years service in the Royal Australian Navy. He was operations officer of the destroyer HMAS Perth and commanded the patrol boat HMAS Wollongong. He currently is serving as the Deputy Director Navy Strategy and Futures in Navy Headquarters.