China's Air Defense Identification System
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China’s Air Defense Identification System: The Role of PLA Air Surveillance BY MARK STOKES n the wake of the 18th Central Committee's Taiwan as an Indirect Political Target? Third Plenum in November 2013, the People’s Republic of China (PRC) Ministry of The PLA has a history of using airpower I as an instrument of coercive persuasion against National Defense (MND) announced the establishment of its first air defense Taiwan. The PLAAF began flights over the identification zone (ADIZ). The announcement Taiwan Strait in 1996, and extended operations 3 outlined procedures for aircrafts flying within to the centerline in 1999. Public discussion the ADIZ boundaries off China’s eastern coast. regarding establishment of an ADIZ system Citing PRC national defense and civil aviation began at least as early as 2007. At that time, laws, an MND spokesman added “this airspace, Taiwan’s China Times, citing Republic of China demarcated outside the territorial airspace, (ROC; or Taiwan) MND sources, reported allows a country to identify, monitor, control and deliberations underway in China regarding dispose of entering aircraft. It sets aside time for establishment of an ADIZ over the Taiwan Strait. early warning and helps defend the country's Also addressed was a PRC initiative to open a airspace.” He further noted that, “China will new commercial air route along the centerline of establish other air defense identification zones the Taiwan Strait that could hinder ROC Air 4 at an appropriate time after completing Force training and “squeeze” Taiwan’s airspace. preparations.”1 The announcement naturally heightened …other potential drivers may offer tensions within the region. Highlighting the additional context for the [ADIZ] decision. confrontational nature of the ADIZ, which Among these include coercion of Taiwan, extends over disputed territories with Japan, unprecedented changes in China's Secretary of State John Kerry stated “this national airspace management system, unilateral action constitutes an attempt to and technical advances that have change the status quo in the East China Sea.” He enhanced interoperability between the further noted that the United States “doesn’t People’s Liberation Army Air Force support efforts by any State to apply its ADIZ (PLAAF) and Navy (PLAN). procedures to foreign aircraft not intending to enter its national airspace.”2 Assessments of the ADIZ to date have During a subsequent discussion focused in large part on implications for broadcast on Phoenix TV, Chinese commentators territorial and maritime disputes in region. debated the nature and extent of an ADIZ over However, other potential drivers may offer Taiwan. One retired PLA general questioned the additional context for the decision. Among these necessity of a dedicated zone over the Strait include coercion of Taiwan, unprecedented since an announced ADIZ concerns international changes in China's national airspace airspace, and the “Taiwan problem” is an management system, and technical advances internal issue. However, he argued that an ADIZ that have enhanced interoperability between the should be established over the entire “first island People’s Liberation Army Air Force (PLAAF) and chain” and extend over the South China Sea. In Navy (PLAN). response to a question regarding the potential “squeezing” effect that an ADIZ could have on Mark Stokes is Executive Director of the Project 2049 Institute. This piece was originally published in Thinking Taiwan on May 5, 2014. China’s Air Defense Identification System | 1 STOKES I FUTUREGRAM 14-003 Taiwan, another commentator opined that an November 2013 ADIZ announcement coincided ADIZ would be effective in coercing Taiwan only with another significant PLA announcement if the boundaries extended to well east of the regarding national airspace management. The island.5 For the PRC, diminishing Taiwan’s air PLA has long operated under the principle of space would play into its strategic objectives and “integrated air traffic control and air defense” claims over disputed territories in the region. (空管空防一体化).7 On November 25, 2013, a Shortly after the inauguration of senior GSD Operations Department officer President Ma Ying-jeou in May 2008, Xinhua announced the PRC’s first codification of civil- published an editorial calling for establishment military lines of authority and partial ceding of of air defense identification zones, indicating the PLA military control over low altitude airspace continuation of the PRC’s deliberations over an to civilian authorities. Intended to boost the eventual establishment of an ADIZ. The editorial aviation market, including the purchase and use argued that “if we establish air defense of private jets, the announcement culminated identification zones, the entire Taiwan Strait will years of frustration over economic costs be under our control, and the East and South associated with inefficiencies in air traffic China Sea problems will be easier to resolve.” control.8 The editorial also cited shortcomings in air At the national level, airspace surveillance coordination and highlighted the management policy is under the purview of a need for the Navy and Air Force to work more vice premier and the State Air Traffic Control closely together.6 Commission (SATCC).9 Although nominally under State Council control and with the PLA Concessions on National Airspace participation of the Civil Aviation Administration Management of China (CAAC), the SATCC Office that manages daily airspace management affairs resides within Taiwan may have been an original target the GSD Operations Department.10 The same PLA of the PLA’s ADIZ-related coercion. But the department also is responsible for strategic Figure 1: Radars of Greater Shanghai Area Air Traffic China’s Air Defense Identification System | 2 STOKES I FUTUREGRAM 14-003 planning to support joint air defense operations, flight plans submitted by civil aviation and presumably would have staffed the ADIZ authorities.14 Improvements are necessary in decision for the Chinese Communist Party order for China’s aviation sector to meet the Central Committee Politburo Standing ambitious goals set by the 12th Five Year Plan, Committee.11 specifically a 13 percent annual growth in air A similar structure exists for regional traffic, with a particular focus on low altitude airspace management. Within the East China flights. One PLA Daily article published in region, the PLA Nanjing Military Region’s November 2013 explicitly linked air defense airspace management coordination commission with low altitude air traffic control policies. consists of members from the Nanjing Military Establishment of an ADIZ could be viewed as an Region Operations Department, Nanjing Military offset for the PLA concession to China’s civil Region Air Force, Air Force Shanghai Base (a aviation community on national airspace corps deputy leader-grade air defense management.15 command), PLAAF 26th Air Division (conducts airborne early warning missions), East Sea Fleet Technical Advances in PLA Air Surveillance Naval Air Force, CAAC’s East China Air Traffic Management Bureau, and various city Beyond sovereignty and territorial authorities.12 The PLAAF – presumably the Air interests and policy changes in civil-military Force Shanghai Base (空军上海基地) – has national airspace management, the ADIZ approval authority for all aircraft flying into or announcement culminated years of PLA out of PRC territorial airspace.13 investment into improved joint air surveillance. Controlling more than 80% of China’s The relevance of radar and other sensors can be airspace, the PLAAF has been the target of illustrated through use of the term air defense civilian criticism for its inefficiency in approving identification zone. Cooperative aircraft, such as Figure 2: PLAAF Third Radar Brigade Sijiaoshan Site China’s Air Defense Identification System | 3 STOKES I FUTUREGRAM 14-003 commercial flights, identify themselves to of PLA investment into improved joint air civilian and military air traffic managers through surveillance. filing of flight plans and use of transponders. PLA air surveillance operators who track non- cooperative aircraft within their assigned zone The PLA has made significant advances rely on radar and signals intelligence (SIGINT). in its joint air surveillance system. In the past, An aircraft flying in an ADIZ may be identified as the PLAAF and PLAN appeared to divide air a possible threat, potentially leading to defense responsibilities, with the Navy interception by PLAAF or PLAN fighters. responsible for defense of major naval bases (eg., East and South Sea Fleet homeports).16 Since at Beyond sovereignty and territorial least 2006, authoritative media outlets have interests and policy changes in civil- indicated that the PLAAF has been granted military national airspace management, responsibility for developing and fielding a new the ADIZ announcement culminated years automated joint air surveillance system. The system relies on a network of sensors that Figure 3: PRC Radar Surveillance Infrastructure and the East China Sea ADIZ China’s Air Defense Identification System | 4 STOKES I FUTUREGRAM 14-003 provides data to centralized air command and ground-based air defenses, and electronic control centers.17 countermeasure units. A common tactical Brigade (or regimental)-level radar units picture may also be shared with other corps- are responsible for coverage of defined sectors level commands within and across military of airspace. The Air Force Shanghai Base is likely regions