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Beyond Borders: PLA Command and Control of Overseas Operations

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Beyond Borders: PLA Command and Control of Overseas Operations July 2020 STRATEGIC FORUM National Defense University About the Author Dr. Phillip C. Saunders is Director of the Beyond Borders: PLA Center for the Study of Chinese Military Affairs, Institute for National Strategic Command and Control of Studies, at the National Defense University. Overseas Operations Key Points By Phillip C. Saunders ◆ Expanded Chinese economic inter- ests and the higher priority given to maritime interests are driving hina’s latest round of military reforms is driven primarily by Xi Jin- People’s Liberation Army (PLA) ef- ping’s ambition to reshape the People’s Liberation Army (PLA) to forts to develop power projection 信息化 capabilities. improve its ability to win informationized [xinxihua, ] wars ◆ The reorganization of the Chinese and to ensure that it remains loyal to the Chinese Communist Party (CCP). military in late 2015 explicitly C The reforms are unprecedented in their ambition and in the scale and scope sought to give the Central Mili- of the organizational changes. Virtually every part of the PLA now reports to tary Commission (CMC) and the theater commands responsibility different leaders, has had its mission and responsibilities changed, has lost or for conducting operations and gained subordinate units, or has undergone a major internal reorganization. The to relegate the services to force- building. However, the services relationships between and among the Central Military Commission (CMC) are trying to maintain operational departments, offices, and commissions, the services, and the theater commands responsibilities, including for over- 1 seas operations. (TCs) have all changed. The reforms established new joint command and con- ◆ The precise division of responsi- trol mechanisms and thus have important implications for how the PLA con- bilities and coordination mecha- ducts operations within and beyond China’s borders. nisms between the CMC, which This paper first discusses the strategic drivers of PLA efforts to improve controls nuclear weapons and likely other strategic capabilities, the Chinese military’s ability to operate beyond China’s borders. Deploying and and the theater commands, which supporting troops beyond China’s land borders require different types of weap- control ground, naval, air, and con- ventional missile forces, remains ons and troops, new logistics capabilities, longer range command, control, com- unclear, especially for large, high- munications, computers, intelligence, surveillance, and reconnaissance (C4ISR) intensity combat operations. support, and appropriate training and doctrine to support power projection mis- ◆ Existing command and control mechanisms are workable for sions. Efforts are under way to build these capabilities. The next section provides now, but are likely to prove inad- a framework of the different types of operations the PLA may be required to equate if PLA overseas operations conduct in the coming years. become larger, require joint forces, last for extended periods of time, The paper then explores which parts of the reorganized PLA have responsi- or occur in nonpermissive environ- bility for command and control of different types of operations. The post-reform AFFAIRS CENTER FOR THE STUDY OF CHINESE MILITARY ments where deployed forces face significant threats from hostile PLA organizational structure is intended to give the TCs primary responsibility state or nonstate actors. for operations and to focus the services on force-building. However, a number ndupress.ndu.edu SF No. 306 1 of gaps and areas of overlapping responsibility exist that Second, China’s leadership has given heightened at- muddy this picture and raise questions about how the tention to China’s unresolved territorial claims, includ- PLA will plan and execute different types of operations. ing Taiwan, the Senkaku/Diaoyu Islands in the East The paper concludes that the post-reform command China Sea, and the Spratly Islands in the South Chi- and control mechanisms are workable for now but are na Sea. The substance of these claims has not changed likely to prove inadequate if PLA overseas operations significantly, but previous reform-era Chinese leaders become larger, require joint forces, last for extended pe- were prepared to downplay them in pursuit of a stable riods of time, or occur in nonpermissive environments regional environment that supported economic develop- where deployed forces face significant threats. The final ment. A richer China, and one where CCP leaders rely section considers how the PLA might create new joint more heavily on nationalist credentials as a source of le- command and control arrangements to better sup- gitimacy, has resulted in a higher priority on defending port expeditionary operations, identifying five potential Chinese claims—with Xi Jinping telling the U.S. Secre- models. Some of those options would require significant tary of Defense that China cannot lose “even one inch of additional reforms to command and control structures, territory”—and in expanding China’s effective control of especially if the PLA envisions conducting joint warfare disputed maritime territory.5 in the far seas. Third, the PLA’s services are in increasing competi- Drivers of PLA Power Projection tion to develop long-range weapons and expeditionary capabilities. The New Historic Missions, originally draft- A broad trend in the PLA that predated the latest ed by the CMC General Office’s research arm, give the round of reforms is an increasing interest in power pro- services political justification to develop new capabilities jection well beyond China’s borders and the First Island and the doctrine to support them.6 For the navy, this in- Chain. David Finkelstein has described the resulting de- cludes development of aircraft carriers and an expansion velopments as contributing to an “incipient expeditionary of the marines while adding “far seas protection” to its PLA.”2 A number of drivers are supporting this effort. “near seas defense” mission.7 For the air force, this in- First, economic interests outside China’s borders have cludes development of long-range strike capabilities and increased as a result of China’s opening up and expanding a new strategic bomber, and a shift to offensive opera- trade and investment ties around the world. This situa- tions and training over water.8 For the army, this includes tion has produced new dependencies on foreign markets greater emphasis on mobility and the ability to deploy and foreign sources of raw materials and energy, as well and sustain forces outside normal operating areas.9 For as a significant overseas presence for Chinese companies the Rocket Force, this includes developing long-range and People’s Republic of China (PRC) nationals, some in conventional missile systems and weapons such as the unstable places. This led Hu Jintao to articulate the “New DF-21D anti-ship ballistic missile (ASBM).10 Such ca- Historic Missions” for the PLA in 2004, which gave the pabilities not only are necessary for the PLA to project military responsibility for protecting China’s economic power beyond China’s land borders but also reflect the development.3 In practical terms, this translates into the modernization goals of the individual military services as need for the military to be able to protect China’s sea lines well as guidance from CCP leaders. of communication (SLOCs) against threats by state and Fourth, China’s civilian and military leaders have nonstate actors, rescue PRC citizens at risk in unstable sought to expand the PLA’s ability to contribute global environments, protect China’s overseas investments, and public goods, such as regional stability and humanitarian ensure stability in countries and regions important to assistance, and to support positive relations with other China’s economic and security interests.4 countries and regions. Chinese leaders have highlighted 2 SF No. 306 ndupress.ndu.edu the PLA’s positive contributions to regional stability such level joint command mechanisms and nominally re- as participation in United Nations peacekeeping opera- moved the services from an operational command role. tions, counterpiracy operations in the Gulf of Aden, and Types of Overseas Operations participation in humanitarian assistance and disaster re- lief (HA/DR) efforts. This represents an effort to portray Before discussing the reforms in detail, it is useful expanding Chinese defense budgets and PLA capabili- to outline potential PLA overseas operations. These can ties in a less threatening manner and to make the case for be grouped conceptually into four broad categories: bor- power projection capabilities as necessary for the PLA to der contingencies, near seas operations and contingen- contribute to regional and global stability.11 China has cies, “theater plus” contingencies, and far seas operations also significantly expanded its efforts to use military di- and contingencies. Border contingencies involve potential plomacy to engage other militaries and support broader conflicts with countries sharing land borders with China; Chinese foreign policy goals.12 each theater command conducts planning and training These four drivers, and the resulting moderniza- for those contingencies within its area of responsibility. tion of Chinese military capabilities that they have sup- Border contingencies may involve interventions or ma- ported, are producing a PLA that is increasingly active jor combat operations in neighboring countries; the term outside China’s land borders.13 Chinese naval activity does not connote
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