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Submarines: Your Questions Answered SPECIAL REPORT Submarines Your questions answered Edited by Peter Jennings and Marcus Hellyer November 2020 SPECIAL REPORT Submarines Your questions answered About ASPI The Australian Strategic Policy Institute was formed in 2001 as an independent, non‑partisan think tank. Its core aim is to provide the Australian Government with fresh ideas on Australia’s defence, security and strategic policy choices. ASPI is responsible for informing the public on a range of strategic issues, generating new thinking for government and harnessing strategic thinking internationally. ASPI’s sources of funding are identified in our annual report, online at www.aspi.org.au and in the acknowledgements section of individual publications. ASPI remains independent in the content of the research and in all editorial judgements. It is incorporated as a company, and is governed by a Council with broad membership. ASPI’s core values are collegiality, originality & innovation, quality & excellence and independence. ASPI’s publications—including this paper—are not intended in any way to express or reflect the views of the Australian Government. The opinions and recommendations in this paper are published by ASPI to promote public debate and understanding of strategic and defence issues. They reflect the personal views of the author(s) and should not be seen as representing the formal position of ASPI on any particular issue. Important disclaimer This publication is designed to provide accurate and authoritative information in relation to the subject matter covered. It is provided with the understanding that the publisher is not engaged in rendering any form of professional or other advice or services. No person should rely on the contents of this publication without first obtaining advice from a qualified professional. © The Australian Strategic Policy Institute Limited 2020 This publication is subject to copyright. Except as permitted under the Copyright Act 1968, no part of it may in any form or by any means (electronic, mechanical, microcopying, photocopying, recording or otherwise) be reproduced, stored in a retrieval system or transmitted without prior written permission. Enquiries should be addressed to the publishers. Notwithstanding the above, educational institutions (including schools, independent colleges, universities and TAFEs) are granted permission to make copies of copyrighted works strictly for educational purposes without explicit permission from ASPI and free of charge. First published November 2020 Published in Australia by the Australian Strategic Policy Institute ASPI Level 2 40 Macquarie Street Barton ACT 2600 Australia Tel + 61 2 6270 5100 Fax + 61 2 6273 9566 Email [email protected] www.aspi.org.au www.aspistrategist.org.au Facebook.com/ASPI.org @ASPI_org ISSN 2200‑6648 No specific sponsorship was received to fund production of this report Contents Foreword 1 Linda Reynolds Introduction 3 Peter Jennings Part 1: Why submarines? 4 What, exactly, do submarines do? 5 James Goldrick Peter Clarke How do submarines deter? 8 James Goldrick Peter Clarke Why is Australia’s requirement for submarines different from other countries’ requirements? 11 Tim Barrett What’s the rest of the Indo-Pacific doing with submarines? 12 James Goldrick How are China’s submarine capabilities developing? 14 Malcolm Davis How are the US’s submarine capabilities developing? 15 Malcolm Davis Where do submarines fit in Australia’s broader defence policy? 16 Peter Jennings Part 2: History 20 What did Australian submarines do in World War I? 20 James Goldrick How were submarines meant to defend Australia in World War II? 22 James Goldrick What role did submarines play in the Cold War? 23 Peter Clarke Why did Australia acquire the Oberon-class submarines? 25 James Goldrick What did the O-boats do? 27 Brendan Nicholson Why did Australia acquire the Collins-class submarines? 29 Andrew Davies Are the Collins-class boats an effective capability? 30 Andrew Davies Part 3: The future submarine 31 How was the Attack-class design chosen? 31 Marcus Hellyer Why aren’t we buying off-the-shelf submarines? 33 Marcus Hellyer Why 12 submarines? 34 Marcus Hellyer Why does it take so long to design and build a submarine? 37 John Davis What are the benefits of building locally? 42 Brent Clark How do we maximise Australian industry capability? 44 Rob Bourke Will we be able to crew the future submarines? 45 Marcus Hellyer Is the cost of the future submarine escalating? 47 Marcus Hellyer What do we do until the future submarine is delivered? 50 Marcus Hellyer How do we design the future submarine for the future? 52 Michael Shoebridge Part 4: Nuclear power 54 How does nuclear propulsion work? 54 Peter Clarke Why didn’t Australia consider nuclear propulsion? 56 Peter Jennings What would Australia have to do to develop a nuclear navy? 58 Peter Jennings Would the US sell us nuclear boats? 60 Peter Jennings Aren’t nuclear-propelled boats too noisy? 62 Peter Clarke Part 5: Myths and mysteries 63 What are the politics of submarines? 63 Peter Jennings Will France and the US cooperate in the Future Submarine Program? 65 Peter Jennings iv ASPI SPECIAL REPORT Do the media report accurately on submarines? 66 Brendan Nicholson How should governments publicly explain the submarine program? 67 Peter Jennings Part 6: The future 69 Where should our submarines be based? 69 Marcus Hellyer Will submarines become easily detectable in the future? 71 Andrew Davies Are space capabilities a threat or an opportunity for submarines? 72 Malcolm Davis How do we ensure that the future submarine remains relevant? 73 Andrew Davies About the authors 74 Notes 75 Acronyms and abbreviations 77 Submarines: Your questions answered v Foreword The Australian Government is firmly committed to keeping Australians safe while protecting our country’s interests in a changing global environment. Being a credible and effective military power in the midst of the most consequential strategic realignment since World War II is a complex task in our nation’s strategic circumstances. Most of Australia’s trade activity occurs through Southeast Asia, so our future prosperity depends on a stable, rules-based Indo-Pacific that permits the free flow of goods and services. Submarines are a vital element of our defence strategy and are essential in protecting those interests. Their substantial firepower, stealth, endurance and sustained presence give Australia a unique advantage: to strike without warning and inflict significant damage to adversaries. Around 300 submarines will be operating in the Indo-Pacific by 2030, so Australia must continue to have credible defence capabilities that can contribute to regional and global security. Integrating multiple capabilities, such as submarines, frigates, helicopters and intelligence systems, into an undersea war-fighting system will give the ADF the necessary depth and resilience to prosecute antisubmarine operations. Our current fleet of Collins-class submarines and their crews are serving our nation with distinction. The Collins class is the world’s most capable conventionally powered submarine, achieving significant operational results of which Australians can be proud. To further advance regional security and the prosperity that we have today, a larger, stronger and more formidable undersea force is needed in the future. To be able to operate far forward with a sustained presence in the Indo-Pacific and to deliver assured access and sea control, we must invest in a more substantial denial capability. The government’s decision to build 12 regionally superior Attack-class submarines in Australia is ambitious but necessary. The Attack class will bring higher levels of interoperability with the US, and its design will allow systems and capabilities to evolve and develop as threats change. A highly capable submarine program is built on strong national foundations. We’re mobilising Australian industry, academia and our emerging new workforce to deliver a sovereign submarine capability. Through strong leadership and growth in essential scientific, technological, engineering and mathematical skills, we’re charting our own course to strengthen Australia’s industrial capacity—to evolve and integrate new, cutting-edge technologies. Building submarines isn’t easy—the risks are high—but the reward is great. We’ll carefully consider our choice of technology and industry partners over the long life of this program to ensure the best possible outcome for the ADF. There’s no substitute for the capabilities that submarines deliver. It’s incumbent upon all of us to maintain our national resolve and long-term focus on this enterprise over the decades ahead. That resolve is central to upholding Australia’s national security and the finest traditions of the Royal Australian Navy. As Minister for Defence, I’m committed to ensuring the successful delivery of our submarine programs. We’re on track and progressing well. Submarines: Your questions answered 1 I commend Peter Jennings and Marcus Hellyer for assembling the team of authors who produced this ASPI Special Report, Submarines: Your questions answered. This is a plain-English guide to the complexities of Australia’s submarine program. While the government doesn’t endorse all of the contributions aired in this study, it’s important that critical nation-building programs such as our submarine program are subjected to robust and broad analysis. ASPI provides many different perspectives on the submarine program in this report. I trust that the report will generate
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