This
appeared last week:
Aukus
Surface tension: could the promised Aukus nuclear submarines simply never
be handed over to Australia?
The multi-billion dollar deal was heralded as ensuring the
security of the Indo-Pacific. But with America an increasingly unreliable ally,
doubts are rising above the waves
Ben
Doherty
Fri 7 Mar 2025 01.00 AEDT
Maybe Australia’s boats just never turn up.
To fanfare and flags, the Aukus deal was presented as
a sure bet, papering over an uncertainty that such an ambitious deal could ever
be delivered.
It was assured, three publics across two oceans were told –
signed, sealed and to-be-delivered: Australia would buy from its great ally,
the US, its own conventionally armed nuclear-powered attack submarines before
it began building its own.
But there is an emerging disquiet on the promise of Aukus
pillar one: it may be the promised US-built nuclear-powered submarines simply
never arrive under Australian sovereign control.
Instead, those nuclear submarines, stationed in Australia,
could bear US flags, carry US weapons, commanded and crewed by American
officers and sailors.
Australia, unswerving ally, reduced instead to a forward
operating garrison – in the words of the chair of US Congress’s house foreign
affairs committee, nothing more than “a central base of operations from which
to project power”.
Reliable ally no longer
Officially at least, Aukus remains on course, centrepiece of
a storied security alliance.
Pillar one of the Australia-UK-US agreement involves, first,
Australia buying between three and five Virginia-Class nuclear-powered
submarines from the US – the first of these in 2032.
Then, by the “late 2030s”, according to Australia’s submarine
industry strategy, the UK will deliver the first specifically designed and
built Aukus submarine. The first Australian-built version will be in the water
“in the early 2040s”. Aukus is forecast to cost up to $368bn to the mid-2050s.
But in both Washington and Canberra, there is growing
concern over the very first step: America’s capacity to build the boats it has
promised Australia, and – even if it had the wherewithal to build the subs –
whether it would relinquish them into Australian control.
We cannot assume that the Americans will always turn up
Malcolm Turnbull
The gnawing anxiety over Aukus sits within a broader context
of a rewritten rulebook for relations between America and its allies. Amid the Sturm
und Drang of the first weeks of Trump’s second administration, there is
growing concern that the reliable ally is no longer that.
With the casual, even brutal, dismissal of Ukraine – an ally
for whom the US has provided security guarantees for a generation – the old
certainties exist no longer.
“I think America is a much less dependable ally under
[president] Trump than it was,” the former prime minister Malcolm
Turnbull tells the Guardian this week. “And this is not a criticism of
Trump, this is literally a feature, not a bug: he’s saying that he’s less
dependable.
“It may be that – regrettably – we do end up with no
submarines. And then we have to invest in other ways of defending ourselves.
But the big message is that we are going to have to look at defending Australia
by ourselves.
“That’s really the issue. We cannot assume that the
Americans will always turn up.”
Trump can hardly be accused of hiding his priorities. If the
47th president has a doctrine beyond self-interest, “America First” has been
his shibboleth since before his first term.
“Our allies have taken advantage of us more so than our
enemies,” he said on the campaign trail. He told his inauguration:
“I will, very simply, put America first.”
‘The cheque did clear’
On 8 February, Australia paid $US500m ($AUD790m) to the US,
the first instalment in a total of $US3bn pledged in order to support America’s
shipbuilding industry. Aukus was, Australia’s defence minister Richard Marles
said, “a powerful symbol of our two countries working together in the
Indo-Pacific”.
“It represents a very significant increase of the American
footprint on the Australian continent … it represents an increase in Australian
capability, through the acquisition of a nuclear‑powered submarine capability …
it also represents an increase in Australian defence spending”.
US defence secretary Pete Hegseth – joking that “the cheque
did clear” – gave succour to Aukus supporters, saying his country’s mission in
the Indo-Pacific was not one “that America can undertake by itself”.
“Allies and partners, technology sharing and subs are a huge
part of it.”
But, just three days after Australia’s cheque cleared, the Congressional Research
Service quietly issued a paper saying while the nuclear-powered attack
submarines (known as SSNs) intended for Australia might be built, the US could
decide to never hand them over.
It said the post-pandemic shipbuilding rate in the US was so
anaemic that it could not service the needs of the US Navy alone, let alone
build submarines for another country’s navy.
Under a proposed alternative, “up to eight additional
Virginia-class SSNs would be built, and instead of three to five of them being
sold to Australia, these additional boats would instead be retained in US Navy
service and operated out of Australia along with the five US and UK submarines
that are already planned to be operated out of Australia”.
The paper argued that Australia, rather than spending money
to buy, build and sail its own nuclear-powered submarines, would instead invest
that money in other military capabilities – long-range missiles, drones, or
bombers – “so as to create an Australian capacity for performing non-SSN
military missions for both Australia and the United States”.
On some
forecasts, the US is projected to have half the working submarines it needs
in 2032 and is building new boats at half the rate it needs to.
Trump believes it can be fixed. He told an address to
Congress-cum-campaign rally this week he would “resurrect the American
shipbuilding industry” by establishing a new “office of shipbuilding” inside
the White House.
“We’re going to make them very fast, very soon.”
A sunken history
Submarines have long presented logistical and political
turmoil for
Australian governments.
The country’s first submarine, HMAS AE1, hit the sea floor
near Papua New Guinea in September 1914, barely seven months into service. All
hands were lost. The second was scuttled by its crew the next year after five
days of operations during the Gallipoli campaign.
In 1919, Australia was “gifted” six obsolete J-class
submarines by Britain. They were sold for scrap within five years. Subsequent
decades brought persistent issues with costs and crewing and difficulties
simply keeping boats in the water.
The nation’s current submarine fleet, the Collins-class
fleet, was built over two decades from 1990, with the first boat put to sea in
1996.
But to replace that now-ageing class, three different
submarine designs have been pursued by successive governments, with boats to be
built by Japan, France and now – under Aukus – the US and UK.
Indecision has brought delay, and with it, a capability gap:
a vulnerability exposed in recent weeks when a flotilla of Chinese warships –
perhaps accompanied by an undetected nuclear submarine – circumnavigated
Australia, and undertook allegedly unforecast live-fire drills in the Tasman
Sea.
‘They have no obligation to sell us a submarine’
In 2016 then prime minister Turnbull signed a $50bn deal
with the French Naval Group for new diesel-electric submarines to be built in
Australia.
That agreement – which had subsequently encountered delays
and cost over-runs – was unilaterally cancelled by his successor, Scott
Morrison, who, in 2021, dramatically signed Aukus with US president Joe Biden
and UK prime minister Boris Johnson. None of these men are in office any more.
Turnbull argues pillar one of the Aukus deal was a
“catastrophe” from conception, and its liabilities “are becoming more apparent
every day”.
“We are spending a fortune vastly more than the partnership
with France would have involved. We’re spending vastly more and we are very
likely, I would say almost certainly, going to end up with no submarines at
all.
“We’re giving the Americans US$3bn to support their
submarine industrial base, but they have no obligation to sell us a submarine.”
He says Morrison’s agreement to Aukus “sacrificed
Australia’s honour, sovereignty and security”.
“Australia has to be sovereign. It has to have sovereign
autonomy. We need to be more self-reliant. Unfortunately, the problem with
Aukus was that it made Australia much more dependent on the United States at a
time when America was becoming less dependable.”
Former prime minister Kevin Rudd, now serving as ambassador
to the US, said from Washington DC this week the Aukus deal has been
consistently reaffirmed under the new Trump
administration, including by the defence secretary, Hegseth, and secretary
of state, Marco Rubio.
He said Aukus would equip Australia with the “most advanced
weaponry in the world”.
The submarines “will have … a lethality and utility across
the Indo Pacific, which will make Australia more secure in the decades ahead”.
“This is a multi-decadal, multi-billion dollar investment by
the Australian government.”
And Rudd told a University of Tennessee audience last month
that Aukus was in the interests of both the US and Australia.
“The strategic geography of Australia is quite critical to
America’s long-term strategic interests in the wider Indo-Pacific. It’s good
for us that you’re there,” he told his American audience, “it’s good for you
that we are there”.
This is a key argument behind the Aukus agreement,
bolstering the belief of those who argue it can and will deliver: Aukus is a
good deal for America. Bases on Australian soil – most notably Pine Gap and
HMAS Stirling (as a base for submarines) – are critical for US “force
projection” in the Indo-Pacific.
But the same argument in favour of Aukus is also used by its
critics: that Australia is being exploited for its geo-strategic location – as
an outpost of US
military might.
‘Almost inevitable’
Clinton Fernandes, professor of international and political
Studies at the University of New South Wales and a former Australian Army
intelligence analyst, says the Aukus deal only makes sense when the “real” goal
of the agreement is sorted from the “declared”.
“The real rather than declared goal is to demonstrate
Australia’s relevance to US global supremacy,” he tells the Guardian.
“The ‘declared goal’ is that we’re going to become a nuclear
navy. The ‘real goal’ is we are going to assist the United States and
demonstrate our relevance to it as it tries to preserve an American-dominated
east Asia.”
Fernandes, author of Sub-Imperial Power, says Australia will
join South Korea and Japan as the US’s “sentinel states in order to hold
Chinese naval assets at risk in its own semi-enclosed seas”.
“That’s the real goal. We are demonstrating our relevance to
American global dominance. The government is understandably uneasy about
telling the public this, but in fact, it has been Australia’s goal all along to
preserve a great power that is friendly to us in our region.”
Fernandes says the Aukus pillar one agreement “was always an
article of faith” based on a premise that the US could produce enough
submarines for itself, as well as for Australia.
“And the Congressional Research Service study argues that …
they will not have enough capacity to build boats for both themselves and us.”
He argues the rotation of US nuclear-powered submarines
through Australian bases – particularly HMAS Stirling in Perth – needs to be
understood as unrelated to Aukus and to Australia developing its own
nuclear-powered submarine capability.
“Submarine
Rotational Force-West (SRF-W) is presented by the spin doctors as an
‘optimal pathway’ for Aukus. In fact, it is the forward operational deployment
of the United States Navy, completely independent of Aukus. It has no
connection to Aukus.”
The retired rear admiral and past president of the Submarine
Institute of Australia, Peter Briggs, argues the US refusing to sell
Virginia-class submarines to Australia was “almost inevitable”, because the
US’s boat-building program was slipping too far behind.
“It’s a flawed plan, and it’s heading in the wrong
direction,” he tells the Guardian.
Before any boat can be sold to Australia, the US
commander-in-chief – the president of the day – must certify that America
relinquishing a submarine will not diminish the US Navy’s undersea capability.
“The chance of meeting that condition is vanishingly small,”
Briggs says.
It now takes the US more than five years to build a single
submarine (it was between three and 3.5 years before the pandemic devastated
the workforce). By 2031, when the US is set to sell its first submarine to
Australia, it could be facing a shortfall of up to 40% of the expected fleet
size, Briggs says.
Australia, he argues, will be left with no submarines to
cover the retirement from service of the current Collins-class fleet, weakened
by an unwise reliance on the US.
The nuclear-powered submarines Australia wants to buy and
then build “are both too big, too expensive to own and we can’t afford enough
of them to make a difference”.
He argues Australia must be clear-eyed about the systemic
challenges facing Aukus and should look elsewhere. He nominates going back to
France to contemplate ordering Suffren-class boats – a design currently in
production, smaller and requiring fewer crew, “a better fit for Australia’s
requirements”.
“We should have done all this 10 years ago. Of course, it’s
too late, but the alternative is no submarines at all … that’s not a good idea.
They give us a capability that nothing else does.
“It’s worth the hunt.”
Here is the
link:
https://www.theguardian.com/world/2025/mar/07/surface-tension-could-the-promised-aukus-nuclear-submarines-simply-never-be-handed-over-to-australia
It looks
like all the nuclear sub options are fantasy and we really should get into an
agreement with Japan for 3-4 modern conventional boats to replace the Collins
Class boats. I suspect that is the best we can do! Anything else looks like a fantasy.....
David.