Submarine Issues For Small and Medium Navies: Naval Modernisation in Southeast Asia, Part Two

NAVAL
MODERNISATION
IN SOUTHEAST
ASIA, PART TWO
Submarine Issues for
Small and
Medium Navies
Geoffrey Till
Collin Koh Swee Lean
Naval Modernisation in Southeast Asia, Part Two
Geoffrey Till · Collin Koh Swee Lean
Editors
Naval Modernisation
in Southeast Asia,
Part Two
Submarine Issues for Small and Medium Navies
Editors
Geoffrey Till Collin Koh Swee Lean
Defence Studies Department Institute of Defence and Strategic
King’s College London Studies
Swindon, UK S. Rajaratnam School of International
Studies (RSIS)
Singapore, Singapore
ISBN 978-3-319-58390-7 ISBN 978-3-319-58391-4 (eBook)

DOI 10.1007/978-3-319-58391-4
Library of Congress Control Number: 2017947710
© The Editor(s) (if applicable) and The Author(s) 2018

This work is subject to copyright. All rights are solely and exclusively licensed by the
Publisher, whether the whole or part of the material is concerned, specifically the rights
of translation, reprinting, reuse of illustrations, recitation, broadcasting, reproduction
on microfilms or in any other physical way, and transmission or information storage and
retrieval, electronic adaptation, computer software, or by similar or dissimilar methodology
now known or hereafter developed.
The use of general descriptive names, registered names, trademarks, service marks, etc. in this
publication does not imply, even in the absence of a specific statement, that such names are
exempt from the relevant protective laws and regulations and therefore free for general use.
The publisher, the authors and the editors are safe to assume that the advice and
information in this book are believed to be true and accurate at the date of publication.
Neither the publisher nor the authors or the editors give a warranty, express or implied,
with respect to the material contained herein or for any errors or omissions that may have
been made. The publisher remains neutral with regard to jurisdictional claims in published
maps and institutional affiliations.
Cover illustration: © John Rawsterne/patternhead.com
Printed on acid-free paper
This Palgrave Macmillan imprint is published by Springer Nature

The registered company is Springer International Publishing AG
The registered company address is: Gewerbestrasse 11, 6330 Cham, Switzerland
Contents
1 Submarines and Their Acquisition: A General

Introduction 1
Geoffrey Till
2 Submarine Acquisition in Southeast Asia: The Dangers 15

Sam Bateman
3 Submarine Acquisition in Australia 29

James Goldrick
4 Submarine Acquisition in Japan 41

Yoji Koda
5 Submarine Acquisition in Indonesia 59

Ristian Atriandi Supriyanto
6 Submarine Acquisition in Singapore 83

7 Submarine Acquisition in Malaysia 97

Dzirhan Mhadzir
v
vi Contents
8 Submarine Acquisition in Vietnam 109

Carlyle A. Thayer
9 Conclusion 119
Geoffrey Till and Collin Koh Swee Lean
Appendix 135
Abbreviations
AIP Air Independent Propulsion (of submarines)

ASL Archipelagic Sea Lanes
ASUW Anti-surface Warfare
ASW Anti-submarine Warfare
AUV Autonomous Underwater Vehicle
C2 Command and Control
CEP Competitive Evaluation Process
CIC Combat Information Centre
CSG Carrier Strike Group
CINCFLT Commander-in-Chief Fleet
DD Destroyer
DDG Guided Missile Destroyer
DDH Japanese Helicopter Carrying Destroyer
DSME Daewoo Shipbuilding and Marine Engineering
EEZ Exclusive Economic Zone
FC Fuel Cell
FCS Fire Control System
FF Frigate
IJN Imperial Japanese Navy
INCSEA Incidents at Sea Agreement
INTERFET International Force in East Timor
ISMERLO International Submarine Escape and Rescue Liaison Office,
Norfolk Virginia
ISR Intelligence, Surveillance, Reconnaissance
JMSDF Japanese Maritime Self-Defence Force
JSDF Japanese Self-Defence Force
vii
viii Abbreviations
MCM Mine Counter Measures

MEF Indonesia’s ‘Minimum Essential Force’
MRO Maintenance, Repair and Overhaul
NATO North Atlantic Treaty Organisation
NDPO Japanese National Defence Programme Outline
OOTW Operations Other Than War
PLA(N) Peoples’ Liberation Army (Navy)
PMI Prevention of Mutual Interference
PRMS Pressurised Rescue Module System
RAN Royal Australian Navy
RMAF Royal Malaysian Air Force
RMN Royal Malaysian Navy
RSN Republic of Singapore Navy
RTN Royal Thai navy
SAF Singapore Armed Forces
SCS South China Sea
SE Stirling Engine
SITS Ship Interface Template Set
SLOCS Sea Lines of Communication
SPLN Indonesia’s Archipelagic Sea Defence strategy
SQDRN Squadron
SRDRS Submarine Rescue Diving and Recompression System
SSB Conventionally propelled ballistic missile firing submarine
SSBN Nuclear propelled ballistic missile firing submarine
SSK Diesel propelled attack submarine
S-TASS Submarine towed sonar array
TNI Indonesia’s National Defence Force
TNI-AL Indonesian Navy
UAV Unmanned Aerial Vehicle
UNCLOS UN Convention on the Law of the Sea
USGW Underwater to Surface Guided Weapon
UUV Unmanned Underwater Vehicle
WSM Water Space Management
About the Editors
Geoffrey Till is Emeritus Professor of Maritime Studies at King’s

College London and Chairman of the Corbett Centre for Maritime
Policy Studies. Since 2009, he has also been a Visiting Professor and
Senior Research Fellow at the Rajaratnam School of International
Studies, Singapore. His Understanding Victory: Naval Operations from
Trafalgar to the Falklands was published by ABC Clio in 2014, and he
is currently working on a fourth edition of his Seapower: A Guide for the
Twenty-first Century.
Collin Koh Swee Lean is a Research Fellow at the Maritime Security

Programme, part of the Institute of Defence and Strategic Studies which
is a constituent unit of the S. Rajaratnam School of International Studies
(RSIS). He is especially interested in researching on naval affairs in the
Indo-Pacific, focusing on Southeast Asia in particular, and generally
issues related to naval technologies, naval modernisation, naval arms con-
trol and the offence–defence theory. Collin also taught at the Military
Studies Programme and taught various professional military educa-
tion and training courses with the Singapore Armed Forces Training
Institute. Prior to join the Maritime Security Programme, Collin worked
at the Military Studies Programme (2010–2014) and the Centre for
Non-Traditional Security Studies (2008–2010), also at RSIS.
ix
List of Figures
Fig. 5.1 Indonesia’s submarine operations, 1959–2012 63

Fig. 6.1 Singaporean perceptions towards defence and national
security, 2015 90
xi
List of Tables
Table 1.1 ‘Guesstimate’ on new submarines in the Indo–Pacific

region by 2030 10
Table 5.1 Indonesian maritime characteristics 65
Table 5.2 Approximate sea distance and sail duration of Cakra-class
from base 71
Table 6.1 RSN’s phased approach to building submarine capability 86
Table 8.1 Characteristics of the Varshavyanka-class Submarine 112
Table 8.2 Vietnam’s Submarine Brigade 189 113
xiii
CHAPTER 1
Submarines and Their Acquisition:

A General Introduction
Geoffrey Till
Abstract  This chapter sets the scene for the whole book by identifying
submarine acquisition as a particularly crucial and a particularly difficult
aspect of naval modernisation for small and medium navies. It explores
the historic role and performance of the submarine in naval warfare and
reviews the strategic impact they may have in Southeast Asia in an era of
dispute over the South China sea and rising competition between China
and the USA.
Keywords  Naval modernisation · Southeast Asia · Submarines in naval

warfare · South China sea · China and the USA · Strategic competition
Ever since the weird little H.L. Hunly sank the USS Housatonic in
Charleston harbour in July 1864, the submarine has been seen as a
weapon of the weak, a ‘force-multiplier’ against a stronger adversary.
In the eighteenth and nineteenth centuries, a skein of early inventors,
Bushnel, Fulton, Nordenfelt and Holland all justified their efforts on this
G. Till (*) 
Defence Studies Department, King’s College London,
Swindon, Wiltshire, UK
e-mail: [email protected]
© The Author(s) 2018 1

G. Till and C. Koh Swee Lean (eds.), Naval Modernisation in
Southeast Asia, Part Two, DOI 10.1007/978-3-319-58391-4_1
2 G. Till
basis, very often with an over-mighty Royal Navy in mind. The stealth
advantages of the submarine, they argued, would narrow the military-
technical dominance the great navies derived from the capacity of their
great ships to control the sea, to blockade the shipping of weaker coun-
tries, to seize their oversea possessions, to support land operations and
even to threaten invasion. In the words of the French delegate to the
1922 Washington Treaty, ‘the submarine is the only arm that allows a
country without a large navy to defend itself at sea’.1
The experience of the First World War seemed to confirm all this.
German U-boat operations seriously constrained the sea-control opera-
tions of the British Grand Fleet in the North Sea and its maritime power
projection capabilities in the Mediterranean. Worse still from the per-
spective of the great navies, submarine operations seemed likely to trans-
form the nature of maritime strategy itself by outflanking the classical
emphasis on securing sea control as a precondition for all operational
activity at sea. Instead, weaker navies equipped with submarines could
achieve decisive strategic effect through a direct assault on the commer-
cial shipping of the maritime powers. This moreover had major interna-
tional repercussions, not least for its impact on US strategic thinking.2
It was the same story in the Second World War, when Churchill rightly
regarded the struggle against the submarines as the decisive battle at sea,
at least in the Atlantic war.3
At this stage, submarine technology was still mostly fairly primitive
‘and [submarines] could be described as torpedo boats capable of short
periods of submerged operation’.4 However, the advent of more sophis-
ticated types like the German Type XXI pointed to numerous possible
futures for the submarine. Indeed, when the US Navy initiated a major
study of the possible functions of the submarine in the late 1940s, no less
than 13 different roles that could be developed were identified.
In the Cold War, the military–technical pendulum seemed to swing
even further in favour of the submarine and the significance of the
undersea campaign, first because many so believed in the improving
tactical advantage that stealthy long-endurance submarines had over
apparently vulnerable surface ships that they simply divided fleets into
2 categories—submarines and ‘targets’. This was exemplified by the tre-
mendous efforts the Royal Navy (one of the most skilled ASW operators
in the world at the time) had to make in order to prosecute a couple
of decrepit or malfunctioning and largely absent Argentine diesel sub-
marines in the Falklands operation of 1982. Likewise, HMS Conqueror
1 SUBMARINES AND THEIR ACQUISITION: A GENERAL INTRODUCTION 3
effectively checkmated the entire Argentine navy, after the sinking of the
General Belgrano.
Second, submarines came into their own in two other ways as well.
The deadly games played between the Russian and NATO submarines
in Europe’s northern waters confirmed that they had become agents not
just of sea denial, but of sea control, apparently usurping many of the
functions of the old battle fleet. In the Second World War, British subma-
rines sank 17 enemy submarines, and the Americans 24, but these were
nearly all on the surface. At that time, the limitations in submarine sen-
sors meant that submarine versus submarine operations under the surface
were not yet a practicable proposition. Despite the scepticism of those
who thought the submarine should stay focussed on fleet support, and
in particular on guarding the carriers, technological improvements led
to their assuming a central role in the general ASW battle.5 In the post-
war era, the submarine versus submarine battle became an essential—and
indeed many thought the essential—dimension of the struggle for sea
control. In this the nuclear propelled submarine had tremendous advan-
tages over their diesel-driven equivalents in speed, range and endurance.
From the end of the Second World War, it also became increasingly
clear that it was feasible for nuclear reactors to be installed in large sub-
marines equipped to fire solid fuel ballistic rockets against the land. This
all came to fruition in the USA with the cruise of the first SSN, the USS
Nautilus in 1955, the commissioning of the USS George Washington, the
first SSBN at the end of 1959 and the first firing of a guided Regulus I
missile from the USS Halibut in the following year.6 As the Soviet Navy’s
Admiral Gorshkov repeatedly pointed out to sceptical colleagues in the
Politburo, Army and Air forces, submarines were the ideal platform for
the operation of the strategic nuclear deterrent and so seemed likely to
make navies more strategically decisive than ever they had been before.
The development of this mission inspired other roles for submarines too,
in both the location and attack and defence of the SSBN ‘boomers’.
All these attributes of a well-handled submarine fleet seemed to mean
that the development of a submarine capability could offer the navies of
the Asia–Pacific region five different, but complementary kinds of poten-
tially decisive strategic effect:
• Sea Denial & Control. Most obviously, their stealth and expanding
offensive power, and their emerging role in ASW operations, made
submarines a key element in battles for sea control between equal
4 G. Till
fleets and very possibly for the sea denial operations of a weaker
fleet against a stronger one. The sinking of the ROKS Cheonan
apparently by a mini-submarine of the North Korean navy suggests
that even such unorthodox craft as these may have significant sea-
denial potential, at least in some circumstances. This is important
since such outcomes would effectively determine the shape of the
subsequent conflict at sea, or even its likelihood in the first place.
Given the current level of interest in anti-access/area denial (A2/
AD) operations in the congested and contested littoral, all this
would seem of particular interest to the navies of East Asia and the
Western Pacific.
For such war-fighting functions, the air-independent propulsion

(AIP) systems gradually arriving in the region appears to offer major
tactical and operational advantage since they allow the need to sur-
face in order to recharge batteries to be reduced from perhaps once
every 3–4 days to once every 2–3 weeks depending on how the sub-
marine is used. Whether AIP proves to be one of those technologies
that change everything remains to be seen, as does the particular
form it might take and the relative attractiveness of the alternate
route of going for improved Lithium-ion batteries instead.
• (Nuclear) deterrence. For some navies, submarines could become
the principal and safest agents for the delivery, attack and protec-
tion of a country’s nuclear deterrent capability. For the moment at
least, this would seem only of direct interest to a few of the larger
navies of the region, but indirectly it could affect many others. The
dynamics of the wider South China sea, for example, would be
changed, for instance, should the Chinese seek to use it as a ‘bas-
tion’ for their nuclear propelled ballistic missile- firing submarines
(SSBNs) operations. It would increase still further the strategic
significance of the area and China’s sensitivity to US naval activ-
ity there perhaps to plot the bottom, and to seed sonar buoys and
other such listening devices. Likewise, North Korea’s determination
to build up a substantial sea-based deterrent capability as evidenced
by its recent missile firings, development of the Gorae (Sinpo) class
of conventionally powered ballistic missile-firing submarines (SSBs)
and the building of two large concrete submarine pens close to the
Mayang-do naval base, has major implications, especially for the
navies of South Korea and Japan.
Neither should the potential attractiveness of non-nuclear deterrent

effect potentially delivered by submarines be forgotten. Vietnam’s
Kilo submarines, for example, are being upgraded in order to oper-
ate the Klub missile system which can be used against land targets.
In some situations, this capability could add significant strategic
effect to the general level of deterrence provided by well-resourced
naval forces. Arguably, the mere acquisition of a submarine (how-
ever effective it may be) signals a country’s determination to defend
its interests, shows that its waters are a contested zone and so helps
deter unwelcome acts.
• Economic Effect. In some circumstances, submarines could inflict
decisive economic and/or political effect through the disruption or
destruction of commercial shipping. Here, the possible role of the
submarine in exploiting President Hu’s ‘Malacca Dilemma’ through
a policy of ‘offshore control’ has occured to quite a number of US
and Chinese analysts.7 Alternatively, other analysts have discussed
the notion of China inflicting a submarine/mining sea denial cam-
paign against Taiwan or the Ryukus or Okinawa—how long could
such places hold out if the flow of basic foodstuffs, petroleum prod-
ucts and so forth were heavily disrupted. How, in any case, could
the USA respond to this?8
• Cognitive Effect. From earliest times, the psychological and moral
effect of submarines has often been much greater than their actual
operational effect. Hence, the wariness of the Royal Australian Navy
about the threat of a couple of Indonesian submarines during the
East Timor operation of 2000. In having so great an effect on the
cognitive dimension of naval operations, submarines seem to offer a
uniquely cost-effective capability, given the advantage the offensive
has over the defensive in submarine operations. Thus, in January
1942, the correlation of defensive/offensive force was 173 ASW
craft and 268 aircraft against 19 U-boats; by December this had
risen to 403 ASW craft and 686 aircraft against 50 U-boats.9 This
may be especially of interest to smaller navies, because of the effect
of this adverse balance of resource on the will of an adversary rather
than simply on his physical means.
• Enabling missions. In addition, to all this, the modern submarine
has also picked up a variety of newer roles such as covert surveil-
lance, support for operations against maritime crime, and the inser-
tion of special forces that will be of interest to small and great navies
6 G. Till
alike. If anything the submarine’s capacity to deliver these addi-

tional enabling functions appears to be increasing. More and more
countries are interested, for example, in submarines as a means of
getting the small groups of special forces ashore to raid or gather
information. Swimmer delivery vehicles and mini-submarines have
increased the submarine’s capacity to do this as in the case of the
Swedish A26, the acquisition of which is now being widely consid-
ered in the region.10
Covert surveillance was a feature of the operations of both sides
during the Cold War as, for example, in the Ivy Bells exercise of
sometime in the 1960s or early 1970s, when US subs tapped into
the Soviet Navy’s telephone system in the Sea of Okhotsk.11 The
Russians are suspected of still engaging in such undersea eaves-
dropping operations.12 Submarine sonars offer an effective means
of monitoring all maritime traffic while electronic signal measures
systems can monitor radio traffic and radar transmissions ashore
and afloat. This function may well be further extended by the use
of remotely operated vehicles. The arrival of optronic masts with
television cameras, image intensifiers and thermal imaging sys-
tems have also greatly increased the submarine’s capacity for visual
surveillance.
Much of this then would seem to apply particularly well to the diverse
navies of the Asia–Pacific region, with some, as will be shown later,
attracted to some of the possible attributes of a submarine capability and
others to others. And yet, none of these aspirations are risk and cost-free,
especially for smaller navies seeking to recover a submarine capability or
to develop one for the first time. Lack of familiarity with the genre and
economy of scale problems make this particularly difficult for them—but
indeed all navies face considerable challenges in developing effective sub-
marine forces. Six such challenges stand out:
Firstly, for the submarine, stealthiness is a relative rather than an abso-
lute operational advantage. All though the Cold War, pundits spoke of
military-technical ways of rendering the oceans transparent, or at least
much less opaque. Now some warn of the tremendous advances in the
rapid collection, processing and dissemination of ‘Big Data’ which could,
for example, make low-frequency sonar much more effective as a means
of detecting submarines. It could, for example, deal with the distortions
caused to weak signals by the thermal layer complications to be found in
the sea. Were this to eventuate at least some of the operational advan-
tages that derive from a submarine’s stealthiness would disappear.13
Of course, this is speculative and such developments in ‘finding’ might
well be countered by the kind of ‘topographical acoustics’ suggested
by some researchers in Singapore as a means of enhanced ‘hiding.’ The
point is that stealthiness, the essential strategic advantage of the subma-
rine, is a dependent variable and the fewer resources a country devotes to
develop it, the less likely it is to be successful.
Secondly, this shows that technological innovation in the submarine
and anti-submarine world (as illustrated by improved sensors, more effec-
tive propulsion systems, the deployment of unmanned vehicles and so
forth) is far from over. From the time that Bushnell developed his bar-
rel like submersible in the eighteenth century, submarines have constantly
evolved in their hulls, propulsion systems,14 weaponry and sensors and
are still doing so. To the extent that states have the resources to invest
in and profit from this continuing campaign, their submarines are likely
to be markedly superior to those of states that do not—hence the appar-
ently increasing need to invest in potentially game-changing technologies
in both submarine and anti-submarine capacities.15 This must cast at least
some doubt on the ability of an inferior fleet with second rate subma-
rines to prevail in a sea denial campaign over an adversary with first rate
subsurface capabilities, other things being equal. Great navies, in other
words, may still hold the upper hand in the undersea world.
This is a particularly important point, given the emphasis on the sea
denial capabilities so often identified as the principal reason for acquiring
submarines. Such claims are usually based on the assumed advantage of
the submarine over the surface ship. But this superiority may not hold
against the superior submarine of a great power. To a large extent, the
first task of the modern nuclear propelled attack submarine SSN is actu-
ally ASW—indicated by the fact that for the first 20 years, US Navy SSNs
did not have a dedicated anti-ship missile. Operating against diesel-pro-
pelled submarines (SSKs), the SSNs of the great navies could seed SSK
operating areas with CAPTOR and other intelligent mines programmed,
for example, to attack particular submarines like the Kilo which are not
fast and would find outrunning such attacks difficult.
Thirdly, in the past, even quite sophisticated submarines for their time
have quite often proved unequal to defensive off-shore tasks because of
their poor position-keeping, low horizon of visibility, communication
limitations, relatively slow speed and surprisingly common problems with
8 G. Till
their torpedoes.16 The allied submarine force assembled to protect the

Dutch East Indies in 1941–1942 from Japanese attack, achieved very lit-
tle; neither did the Japanese submarine fleet prove to be a decisive check
against the American westward advance across the Pacific.17 It is not
clear that simpler, cheaper submarines have entirely overcome these dis-
advantages.
Fourthly, participating in a submarine race that is qualitative as well
as quantitative will be especially demanding for a navy capable only of
deploying only a few submarines because of the economy of scale prob-
lems mentioned earlier. This makes submarines produced in low num-
bers relatively much more expensive than ones in larger scale serial
production. The same goes for maintaining, operating and crewing rela-
tively small numbers of submarines, as even the Australian and Canadian
navies have discovered in recent years, especially if they are doing so
for the very first time with little in the way of the hard-won experience.
Having just a few submarines makes it difficult to guarantee the perma-
nent operational capability needed for secure planning. The iron law of
refits (improving though it might be) means it is quite possible that the
required submarine capability a country needs in an emergency is simply
not available when needed most, and so cannot be relied upon.
As even long-term submarine operators such as the British and Swedes
have demonstrated, it is excessively difficult to maintain an independ-
ent submarine building capacity especially when comparatively low fleet
numbers are involved. Early problems in the delivery of the Royal Navy’s
Astute SSN programme were the consequence of the long gap in subma-
rine manufacturing that had taken place before the programme started.
The byzantine story of the Swedish government’s disposal and subse-
quent reclamation of an independent submarine manufacturing capacity
in Kockums illustrates both the costs and also the apparent desirability
of such an aspiration. In Sweden’s case, this aspiration may be rendered
more feasible by a determined export drive for submarines designed or
made in the country for foreign customers; this of course is another way
of developing economies of scale for the producer. This offers such sig-
nificant commercial advantage even to well-established diesel subma-
rine producers such as the Japanese, Swedes, French and Germans that
submarine acquisition policy in Southeast Asia may be distorted by too
much producer-push rather than consumer-pull.18
The fact that most medium to small countries will find it especially
difficult to start up relevant indigenous industrial capacity can only
increase their dependency on others. In terms of design and delivery

skills, submarine production is extremely demanding and it will be a very
long time, if ever, that such an enterprise would make commercial sense.
If this is so, then smaller customers for submarines are likely to be strate-
gically beholden to producers, at least to some degree for the foreseeable
future. On the other hand, the experience of the Japanese navy seems to
suggest that a settled long-term submarine acquisition plan can go a long
way in resolving these difficulties.
Fifthly, the history of the submarine shows that both their techno-
logical development and operational deployments are inherently dan-
gerous, and mistakes and deficiencies are generally more catastrophic
in their consequence than they are for equivalent surface combatants.
Too many submarine entrepreneurs went down with their inventions
and never came up; not for nothing were submarines often referred
to as ‘peripatetic coffins’ in the nineteenth century. In wartime opera-
tions, the German Kriegsmarine, for example, delivered arguably the
most operationally proficient submarine fleet of the twentieth century
but even so 72% of its total personnel died at sea.19 Pre-war and post-
war submarine operators, even experienced ones, have suffered numer-
ous tragic accidents even in times of peace.20 The list is a long one,
including the American Thresher and in 1968 Scorpion, Israel’s Dakar,
France’s Minerve (both also in 1968), Russia’s Golf II (1974) the K-19
and K-219 (1979), Kopmsomolets (1989) and Kursk (2000)21 Canada’s
Chicoumi of 2004 and India’s Sindhurakshak (2013).
Sixthly, sceptics might add that even though the submarine is indeed
capable of diverse missions in war, it remains, like aircraft, less flexible
and more limited in its range of activities than surface ships, especially
in the grey area between peace and war. It is difficult for submarines to
fire clear warning shots against other platforms or to engage in some
of the lower reaches of coercive activity. Submarines are not best suited
for humanitarian and maritime security operations, ‘passing exercises’,
ship visits even the holding of diplomatic cocktail parties. Since they are
nevertheless expensive, there is an argument that a country could get a
greater variety of choice from an equivalent investment in modern sur-
face ships.
Despite these difficulties, Southeast Asia and indeed the countries
of the whole Asia–Pacific region seem intent on the acquisition of sig-
nificant submarine capabilities, amounting to some 12% of overall naval
10 G. Till
Table 1.1 ‘Guesstimate’ on new submarines in the Indo–Pacific region by 203023
Country Number of new boats
Australia 12
Bangladesh 2
China 20
India 13
Indonesia 6
Japan 8
North Korea 15
South Korea 14
Myanmar 2
Pakistan 8
The Philippines 2
Singapore 2
Taiwan 8
Thailand 3
Vietnam 4
acquisition.22 A guesstimate of the future consequence of these efforts

might be as shown in Table 1.1:
Three questions arise then—Why are submarines being acquired, how
are they being acquired and what will be the consequences of all this?
The Question: Why?

Knowing all the challenges and difficulties they face as professionally,
they must, why are the leaders of the navies of the Asia–Pacific region in
general and of Southeast Asia in particular presiding over the prolifera-
tion of submarines in their region? Is it always a secure and considered
judgement that the submarine’s future operational advantages will out-
weigh the dangers and the resource and organisational challenges that
will confront their acquisition?
The Question: How?

How do the region’s navy leaders intend to meet these challenges? To
what extent will the budgetary and political support required for the
acquisition or expansion of these demanding capabilities actually prove
forthcoming? How will the all-important issue of its impact on the
development of the domestic economy be handled and the relationship

with foreign suppliers maintained?
The Question: With What Consequences?

… and if their efforts are successful what will be the consequence of
the acquisition or development of submarine capacities be for the peace
and stability of the region? Some observers have pointed to the danger
of accidents in Southeast Asia’s crowded and sadly contested seas and
argued the need for agreed operational guidelines, submarine rescue
agreements and confidence-building measures.24 Will it make the region
more secure and stable as the strategic gaps between the great and the
small are narrowed (assuming they are), or will it increase suspicion and
the risks of misperception and so threaten to destabilise an area already
subject to a worrying range of tensions? Nor, the sea being one, should
we ignore the possible reaction to all this of the great navies from further
afield, the Chinese, Americans and Japanese in particular, but others too.
The following chapters will address these issues and questions. They
may well represent a range of differing views. In the final chapter, we will
seek to summarise and synthesise the points made.
Notes
1. Quoted in Thomas Parrish, The Submarine: A History (London: Penguin
Books, 2004) p. 174.
2. Dubbs, Chris, America’s U-boats: Terror Trophies of World War I (Lincoln:
Iniv of Nebraska Press, 2014).
3. Quoted in Thomas Parrish, The Submarine: A History. (London: Penguin
Books, 2004) p. 289.
4. Admiral I.J. Galantin, Submarine Admiral: From Battlewagons to Ballistic
Missiles (Urbana: Univ of Illinois Press, 1995) pp. 136–137.
Missiles (Urbana: Univ of Illinois Press, 1995) pp. 75, 200–202.
Missiles (Urbana: Univ of Illinois Press, 1995), pp. 149, 191, 206, 231,
239–240.
7. Most famously by T.X. Hammes ‘Offshore Control: A Proposed Strategy
for an Unlikely Conflict’ (Washington: INSS at National Defense
University, June 2012).
12 G. Till
8. Posted as ‘Sea denial, US maritime Strategy and Conventional Deterrence

of China, Information Dissemination, 30 Nov 2014.
Missiles (Urbana: Univ of Illinois Press, 1995) pp. 66–67.
10. Jon Grevatt, ‘Saab pitches A26 sub to Thailand’ Jane’s Defence Weekly
(JDW) 6 May 2015; ‘A 19 upgrade’; Rahul Bedi, ‘Sweden offers India
Gripens, Gotland boats’ JDW 17 May 2015.
11. Clancy, pp. 200–201.
12. Michael Evans, James Dean, ‘Putin’s subs target internet cables’ The
Times, 27 Oct 2015.
13. Active sonar is better providing better definition, but its ping give you
away—being heard at a range five times more than it can locate a target—
Clancy, op cit., p. 82.
14. The diesel engine provided the big propulsion breakthrough just before
the First World War. Parrish, p. 39.
15. Christopher P. Cavas, ‘Seeking Game Changers in the Undersea World’
DefenseNews 30 Nov 2015.
16. Two of the best submarine fleets of the Second World War, the Germans and
the Americans, suffered grievously from faulty torpedos. The USN’s Mk
XIV and X ran 11’ lower than the depth set—hence the misses. This reveals
the dangers of untested in-house torpedo development. Galantin, pp. 49,
91. The Japanese Type 95 Mon 21” were much better but used ineptly.
17. Their warship sinkings were tiny compared to USNavy’s Galantin, p. 246.
A possible exception to this might have been the first class British sub-
marine force deployed to deal with a Japanese invasion of Malaya and
Singapore but this force was withdrawn in late 1940 for other duty.
18. Jon Grevatt, ‘Saab pitches A26 sub to Thailand’ JDW 6 May 2015; ‘A 19
upgrade’; Rahul Bedi, ‘Sweden offers India Gripens, Gotland boats’ JDW
17 May 2015; Richard Scott, ‘Sweden signs deal for a A26 submarine
order, 8 July 2015; Jon Grevatt, ‘Japan pushes MHI to find foreign part-
ners for Soryu’ JDW 29 July 2015.
19. Thomas Parrish, The Submarine: A History. (London: Penguin Books,
2004) pp. 295, 423.
20. One of the worst, surely, the so-called battle of the British K-boats in
February 1918, Thomas Parrish, The Submarine: A History. (London:
Penguin Books, 2004) pp. 183–240.
21. Parrish op cit., pp. 495–509.
22. Wendell Minnick, ‘Europe Dominates Navy Ship sales in SE Asia’
DefenseNews, 15 June 2015.
23. I owe this table to my editorial colleague Dr Collin Koh. It is based on
information available in IHS Aerospace, Defence & Security (formerly
Jane’s) databases, the International Institute of Strategic Studies Military
Balance, summary of the Naval Systems Projections Database (NSPD),

American Maritime International (dba AMI International) and various
news reports. Entries highlighted in bold denote new submarine opera-
tors in the region.
24. Jermyn Chow ‘Urgent need for guidelines on submarine ops in region’
Straits Times, 21 May 2015.
Author Biography
Geoffrey Till is Emeritus Professor of Maritime Studies at King’s
College London and Chairman of the Corbett Centre for Maritime
Policy Studies. Since 2009, he has also been a Visiting Professor and
Senior Research Fellow at the Rajaratnam School of International
Studies, Singapore. His Understanding Victory: Naval Operations from
Trafalgar to the Falklands was published by ABC Clio in 2014, and he
is currently working on a fourth edition of his Seapower: A Guide for the
21st Century.
CHAPTER 2
Submarine Acquisition in Southeast Asia:

The Dangers
Sam Bateman
Abstract  The acquisition of submarines is not only intrinsically difficult

and expensive for small and medium navies, but their maintenance and
operation pose real challenges for them too. In particular, their operation
in such contested and demanding waters as the South China Sea in an
era of rising tension between China and the USA may threaten regional
stability.
Keywords  Naval modernisation · Southeast Asia · Proliferation

South China Sea · Accident risk · Destabilisation
Introduction
Southeast Asian nations are acquiring more submarines for a range of
reasons. The utility of submarines for covert surveillance and intelligence
collection may be a more significant factor than the ability to sink ships.
However, perceptions of the deterrent value of submarines are also a fac-
tor. Submarines are a classic force multiplier requiring a disproportionate
S. Bateman (*) 
University of Wollongong, Wollongong, Australia

16 S. BATEMAN
response from an adversary. National prestige and a desire to keep up

with one’s neighbours are other considerations with submarine acqui-
sitions. A submarine arms race may be developing in the region with
submarines being acquired or submarine fleets expanded because neigh-
bouring countries and potential adversaries have embarked on simi-
lar programs.1 Submarines are weapon systems that, if acquired by one
country, markedly affect the defence calculations of others and it is easy
to slip into a competitive arms race.
The dangers associated with these developments are fourfold.2 First,
submarines are inherently dangerous weapon systems posing numerous
dangers arising from their operations. Second, there are maintenance
and support problems associated with operating relatively small fleets
of submarines. Third, strategic dangers arise from having more subma-
rines operating in the relatively confined waters of Southeast Asia. Lastly,
trends with submarine detection pose longer-term risks that manned
submarines may lose much of their attraction to regional navies. This
chapter addresses these dangers and concludes with some ideas about
how the risks might be reduced.
Operational Dangers
As the regular occurrence of submarine accidents around the world dem-
onstrates, submarines are inherently dangerous vehicles. In acquiring
submarines for the first time or building up submarine fleets, regional
countries may be underestimating the risks of submarine operations.
Even a relatively minor accident onboard can have catastrophic conse-
quences. Then, there are the navigational risks associated with having
more submarines operating in areas with a high level of fishing activity
and dense shipping traffic. Parts of regional waters, particularly in and
around the Spratly Islands in the South China Sea, are poorly charted,
posing the risk of a submerged submarine striking an uncharted sub-
merged reef or pinnacle.
The most infamous submarine accident in recent decades was the
sinking of the Russian submarine Kursk in the Barents Sea in August
2000 with the loss of its entire crew of 118 personnel. The full crew of
70 of the Chinese submarine Ming 361 suffered a similar fate in May
2003 when they all suffocated after a technical malfunction onboard
leaked toxic fumes.3 In January 2008, an Indian Navy submarine was
damaged after it collided with a merchant ship in the Arabian Sea.4 Then
2 SUBMARINE ACQUISITION IN SOUTHEAST ASIA: THE DANGERS 17
in February 2009, French and British nuclear ballistic missile submarines

collided while on patrol in the Atlantic.5 Despite the sophisticated sonar
equipment onboard these vessels, apparently they were unaware of each
other. Fortunately, the damage to the submarines was slight, but it could
easily have been catastrophic. In August 2013, a series of explosions sank
India’s frontline submarine INS Sindhurakshak, killing 18 personnel,
shortly before she was due to proceed on a classified war patrol.6
There have been several incidents in both Japanese and European
waters when submerged submarines have caught the nets of fishing boats
and dragged them under—in some cases with loss of life. A US subma-
rine is believed to be responsible for the sinking of a French trawler off
the Cornish coast in January 2004 with the loss of five lives.7 It is the
duty of a submarine, when submerged to keep clear of surface ships.
Thus, the accidents that have occurred involving a submarine and a sur-
face ship have been entirely the fault of the submarine. On the surface, a
submarine obeys the rule of the road like any other vessel, but at night it
can be difficult to see a surfaced submarine and appreciate its course and
length. These are all important considerations for submarines operating
in areas of high fishing and shipping activity such as the South China
Sea, or in busy waterways such as the Malacca and Singapore straits.
Even the most proficient operators of submarines, including the US
Navy and the Royal Navy, suffer submarine accidents with depressing
regularity. In July 2016, HMS Ambush, one of Britain’s newest nuclear
attack submarines collided with a tanker off Gibraltar while conduct-
ing the demanding training course for submarine commanding officers,
known as ‘The Perisher’.8
Accidents involving US submarines provide a graphic reminder of
the inherent risks of submarine operations. The worst incident in the
past 15 years involving an American submarine occurred off Honolulu
on 9 February 2001 when the USS Greeneville surfaced underneath
the Japanese fisheries research vessel Ehime Maru, sinking it with the
loss of nine lives.9 Then in 2005, the USS San Francisco hit an under-
sea mountain in the Pacific, killing one sailor and injuring 24 others. In
late December 2006, two sailors were swept to their deaths from the hull
of the USS Minneapolis-St Paul in rough weather off Plymouth in the
UK.10 About a week later, the USS Newport News, travelling submerged,
hit the large Japanese tanker Mogamigawa while passing through the
Straits of Hormuz.11 In March 2009, the submarine USS Hartford col-
lided with the amphibious ship USS New Orleans in the Persian Gulf in
March 2009 causing serious damage.12
18 S. BATEMAN
This string of submarine accidents shows that the underwater envi-

ronment is a dangerous one. Submarines face many dangers. They have
an extremely small margin for error. Even a small fire, flooding, or gas
leak inside a submerged submarine can have tragic consequences, pos-
sibly even the total loss of the vessel and her crew. Arguably, submarine
operations are among the most dangerous operations routinely con-
ducted by defence forces.
The dangers of submarine operations are accentuated because sub-
marines suffer from very severe command and control (C2) limitations.
Submarine C2 has made nowhere near as much progress as C2 has in
other types of military operations.13 Communications with submarines,
particularly if they are engaged on sensitive missions, may not always
be reliable and comprehensive standard operating procedures must be
in place to deal with all eventualities. A submarine may be out of radio
contact for extended periods of time. Radio waves do not penetrate sea
water to any extent, and a submarine has to put itself, or an antenna,
close to the surface to make radio contact. However, in many operational
circumstances, this may not be possible. Required command and control
procedures include ones for dealing with incidents when submarines are
overdue in reporting their location or that they have surfaced (referred
to as ‘Submiss/Subsunk’ procedures).
Maintenance and Support Risks

The problems with building up and maintaining a submarine force are
significantly greater than is commonly understood or acknowledged.14
These problems arise from the difficulties both with providing the neces-
sary level of technical support for the vessels without reliance on overseas
support and with providing crews that are adequately trained and expe-
rienced. Overall, a submarine that lacks a well-trained crew or a compe-
tent shore maintenance organisation will not accomplish much of what is
expected from the capability.15
Submarines require a higher level of maintenance and experience
longer periods out of service for routine maintenance than surface war-
ships. This means that countries with small submarine fleets have a
problem with balancing the requirements of training and operations.16
International submarine experts also point out that a country operating
a small fleet of submarines (12 boats or less) becomes locked into techni-
cal and logistic support from the country of origin of the submarines.17
This dependence may place limitations on the strategic employment of

the submarines.
Personnel issues are a major problem. Human error is a major cause
of accidents at sea generally and submarines are no exception. Submarine
crews must be highly proficient, but some in Southeast Asia may fall
short in this regard, particularly in the navies that have only recently
entered the submarine business. As one knowledgeable observer has
noted, ‘It takes decades of submarine service to develop the tactics, tech-
niques, procedures and doctrine, backed by experience, to be effective’.18
Submarine commanding officers in particular have a huge respon-
sibility. Their training and experience must be commensurate with this
responsibility. Navies must be confident that their submarine command-
ing officers are competent to handle serious incidents, including ones
that could escalate into conflict, on their own initiative and without
guidance and direction from ashore. Despite how well one’s own subma-
riners are trained, submarine safety is like road safety: The avoidance of
an accident also depends on the skill of the other driver and the quality
of the road rules. And there will be more drivers on regional undersea
highways in the future without any rules in place.
Difficulties can also be experienced with attracting personnel to serve
in submarines. Life aboard a submarine is tough, operations can be hec-
tic, quarters are cramped, the vessel can be submerged for long periods,
and the health of crew members can suffer as a result.19 To make up for
these unattractive working conditions, the Royal Australian Navy has
found it necessary to pay large bonuses to attract and maintain personnel
to crew its submarines.20
Strategic Dangers
Numerous implications for regional security flow from the proliferation
of submarines in the region. As well as the risks of a submarine ‘arms
race’, there is a greater possibility of incidents involving submarines lead-
ing to increased tensions or even conflict. ‘Intruder’ submarine incidents,
such as a foreign submarine being detected submerged in another coun-
try’s territorial sea, may occur in the future as submarines increase in
number and regional anti-submarine warfare (ASW) capabilities improve.
States are extremely secretive when discussing submarine issues. This
is contrary to the desirable principle of transparency in military acqui-
sition programmes and operations. Surveillance, reconnaissance and
20 S. BATEMAN
intelligence gathering are major roles for submarines in Southeast Asia.

Conventional diesel-powered submarines such as those being acquired
by regional navies are particularly well suited for special operations and
intelligence work, especially inshore and in relatively shallow waters.
Submarines can covertly listen in on communications, such as by cell
phones, and other electronic emissions that are subject to ducting and
not detectable from space or even from the air.21 Also, diesel-powered
submarines can sit undetected on the bottom outside harbours or in
other areas of interest and only approach the surface by night.
The undersea environment of Southeast Asia will be very busy in the
future with increased risks of interaction between submarines of differ-
ent nationalities and of submarines being detected on covert surveillance
missions or in waters that are the subject of a sovereignty dispute. The
risks of such incidents are worrying and a potential cause of conflict and
tension in regional waters. Greater numbers of submarines pose new
challenges for preventive diplomacy and maritime trust building in the
region. Checks and balances are required to prevent the escalation into a
conflict of a serious incident, involving a submarine.
Submarines are routinely used by most navies for covert surveillance
and intelligence collection missions, during which they may ‘intrude’
into the territorial sea, archipelagic waters, or even the internal waters
of another state. There is an inherent risk that a submarine engaged on
such a mission may be detected by the ASW systems of the coastal state.
The tactics employed by naval forces detecting a submerged ‘intruder’
submarine will be proportional to the military threat and strategic cir-
cumstances at the time. An ‘intruder’ submarine detected in an area of
disputed sovereignty may well be subjected to attack. If the submarine
considered that circumstances justified it being where it was and remain-
ing submerged, it would have the right of self-defence and may well
counter-attack its persecutor.
When an ‘intruder’ submarine is detected in the territorial sea, every
measure should be taken short of force to require the submarine to
leave.22 Relevant measures might include dropping non-lethal warn-
ing charges, or firing a depth charge or mortar bomb at a known safe
distance from the submarine. However, ASW torpedoes are now the
main weapons against submarines rather than mortar bombs and depth
charges, and these cannot be used in a ‘warning mode’ to warn off an
‘intruder’ submarine.
Furthermore, anti-submarine and submarine weapons are clumsy ones

with often an ‘all or nothing’ result. Political circumstances might well
not justify large loss of human life. As the British found with the sinking
of the Argentinean cruiser General Belgrano with large loss of life during
the Falklands War,23 it is not possible for a submarine to use ‘minimum
force’ when it fires torpedoes. An attack by a submarine can be a dras-
tic means of achieving limited goals. The damage that a submarine can
inflict using its primary weapon systems, missiles and torpedoes, is nearly
always fatal. Similarly, a successful attack on a submarine may result in
total loss of the vessel and its crew, and this may be an inhumane out-
come in the circumstances. It might lead to a dramatic escalation of the
tension between the parties involved.
There are real risks of ‘intruder’ submarine incidents in the future, par-
ticularly in sensitive areas such as the South China Sea. The acquisition
of submarines by Malaysia and Vietnam, as well as the expansion of the
Chinese fleet, is almost certainly related to the conflicting claims of these
countries to islands in the South China Sea, and the perception of a require-
ment to covertly monitor the activities of other claimants in the area. The
ability to manage the types of situation that might arise will put a premium
on command and control arrangements in regional navies and regional cri-
sis management. Due to the risks of a submarine incident escalating into
violence, the region requires agreed procedures to allow ‘intruder’ subma-
rines or submarines detected submerged in the territorial sea of another
state to identify themselves before being attacked.
Considerable intelligence effort is expended on obtaining the acoustic
signature of foreign submarines so that they might be more readily identi-
fied in the future. The USNS Impeccable may have been undertaking this
form of intelligence collection when it was harassed by Chinese vessels in
the South China Sea in March 2009.24 As submarine activity increases in
East Asian seas, this form of intelligence collection is likely to increase.
Legal issues are an important consideration. A key limitation on sub-
marine operations is that in accordance with the 1982 UN Convention
on the Law of the Sea (UNCLOS), a submarine exercising the right of
innocent passage either through the territorial sea of any country or in
the archipelagic waters of Indonesia and the Philippines outside of archi-
pelagic sea lanes is required to travel on the surface and show its flag.25
Indonesia is particularly concerned about possible breaches of its sover-
eignty in its archipelagic waters.26 It is sensitive to the movement of foreign
warships and submarines through these waters, especially the possibility
22 S. BATEMAN
of submarines travelling submerged outside of its declared archipelagic

sea lanes. There have been several incidents over the years in Indonesian
waters, involving Australian or American submarines, where Indonesia
has queried submarine movements in its archipelagic waters. In 2000,
President Wahid warned Singapore not to allow its submarines to stray into
Indonesian waters, promising a swift military response should that occur.27
Longer-term Dangers
Longer-term dangers arise from the proliferation of submarine fleets in
Southeast Asia. There is potential for worrying developments with the
proliferation of cruise missiles and even weapons of mass destruction.
Submarine-launched land-attack missiles, mainly cruise missiles, such as
Tomahawk, by the USA and its allies, have been a major development
with submarine weapons that other countries are now seeking to emu-
late.28 However, while cruise missiles are superficially attractive, consider-
able investment in external targeting systems is required if the long-range
potential of these systems is to be exploited. This is likely to be beyond
Southeast Asian countries in the foreseeable future although more tech-
nologically advanced and larger navies, such as those of China, India and
Japan, will pursue their development.
Looking into the future, great advances continue to be made with
ASW and submarine detection. These developments may be shifting the
balance against the submarine. While technological developments with
making submarines stealthier have almost reached a limit, developments
continue with the ability to detect submarines both with acoustic and
with non-acoustic systems—and with some mix of both. Perhaps it is not
going too far to predict that in the foreseeable future submarines may
become more detectable in coastal waters.29 Thus, submarines may lose
some of their attractiveness to regional navies.
Vast improvements in signal processing, which allow very small sig-
nals to be processed, have increased the performance of acoustic sensors.
However, they still suffer from limitations dictated by the laws of the
physics, and their performance has probably been taken about as far as
it comes, except for developments with networking systems and different
sensors. Hence, much greater attention is now being given to non-acous-
tic ASW sensors. These gain importance because submarines have become
quieter, and greater attention is being given to littoral waters where the
performance of acoustic sensors may be significantly degraded.30
The ability of submarines to escape detection is decreasing as new

detection techniques are developed that rely on phenomena other than
sounds emanating from a submarine.31 Non-acoustic sensors include
magnetic sensors, such as the magnetic anomaly detector (MAD), that
exploit the magnetic signature of a submarine; electric field (ELFE) sen-
sors that detect the electric fields created between moving parts of a
submarine’s machinery manufactured from different materials; infrared
systems that detect thermal radiation from the mechanical and electronic
‘hot spots’ of a submarine; laser-based systems; electronic sensors that
detect electronic transmissions from a submarine no matter how short
they might be; synthetic-aperture radar to detect the wake created by
a submarine or the ‘hump’ in the ocean surface created as a submarine
moves through the water beneath; bioluminescence to detect the subma-
rine’s disturbance of marine plant and animals. Again non-acoustic sen-
sors have benefited from great advances in signals processing, but they
also have limitations. Magnetic sensors, for example, have limited range
and are generally only useful for localising a submarine and confirming
that the contact is in fact a submarine.
There is much research being conducted into non-acoustic
ASW sensors, particularly in the USA. Further advances might be
expected, including the ability to network a range of different sensors.
Developments include the development of multistatic arrangements, net-
working a range of sensors, so that the sources of transmissions from a
source (e.g. an active sonobuoy or surface ship sonar) are not co-located
with the receiver which, for example, might be a co-operating subma-
rine. Networking might include both acoustic and non-acoustic sensors.
These reflect developments in computer processes to run detailed models
to detect very small environmental changes made by a quiet submarine.32
Other technological developments that could lead to marked changes
in the regional requirement for submarines include the development of
underwater drones that could take over much of the current covert surveil-
lance and intelligence collection activities of submarines in Southeast Asia.33
Reducing the Risks

Experience elsewhere in the world suggests that it is only a mat-
ter of time before a serious submarine accident occurs in Southeast
Asia. Measures are required to improve submarine safety in the region.
Arrangements for water space management (WSM) and the prevention
24 S. BATEMAN
of mutual interference (PMI) with submarine operations might be possi-

ble. A regional submarine Movement Advisory Authority along the lines
of procedures currently followed by Western navies might be possible.
This would mean that the parties to the regime know the operating areas
of other submarines. However, this will be difficult in view of the covert
nature of submarine operations and the sensitivity of regional countries
to sovereignty issues. In the longer term, the establishment of submarine
exclusion zones or ‘no go’ areas for submarines might be achievable, par-
ticularly in areas where sovereignty over islands and reefs is disputed.
Meanwhile, a range of prospective measures for mitigating the adverse
consequences of regional submarine developments should be considered.
These might include regional protocols for dealing with unidentified sub-
marines detected in the territorial sea, including the procedures to be
followed and signals to be used. These protocols might include an agree-
ment that in normal circumstances, the submarine should not be attacked
with potentially lethal force. Government-to-government ‘hot-lines’
between national submarine operating authorities might also be consid-
ered. Singapore has recently proposed an operational framework based to
reduce the possibility of submarine-related incidents covering areas where
regional cooperation is required, including common standards in terms of
submarine safety regimes and agreement on a code of conduct that can
guide submariners on what to do should their boat unexpectedly encoun-
ter another underwater vessel during an operation.34
Continued regional cooperation is required on submarine training
and safety, including submarine escape exercises and the development
of protocols for cooperation to deal with missing or sunk submarines
(SUBMISS and SUBSUNK procedures). A regional submarine rescue
organisation might be introduced in which China, as a major operator
of submarines, might play a part.35 The US Navy has established the
International Submarine Escape and Rescue Liaison Office (ISMERLO)
in Norfolk, which is a logical location for it in view of the US Navy’s
long history in submarine rescue, but other states may have sensitivities
about the ISMERLO extending its responsibilities to include Southeast
Asian waters.36
More submarines in the region are potentially destabilizing, particu-
larly as they may be employed on covert missions in disputed waters.
There are challenges here both for maritime confidence building and
ensuring submarine safety. By their very nature, submarines are not well
suited to maritime confidence building measures, including an incident

at sea (INCSEA) type agreements. In the longer term, arms control
measures may have to be discussed to place limits on the numbers of
submarines either absolutely or in particular areas. While naval arms con-
trol measures placing quantitative and qualitative limits on the numbers
of submarines and their weapons systems are unlikely in the foreseeable
future, they may become necessary if current trends continue.
Notes
1. Collin Koh Swee Lean, ‘Submarines in Southeast Asia: Proliferation,
Not a Race’, The Diplomat, 30 January 2014, http://thediplomat.
com/2014/01/submarines-in-southeast-asia-proliferation-not-a-race/.
2. This chapter draws on Sam Bateman, ‘Perils of the Deep—The Dangers
of Submarine Proliferation in the Seas of East Asia’, Asian Security, 7(1)
2011, pp. 61–84.
3. ‘70 sailors aboard China sub die in mystery accident’, Defense-Aerospace, 3
May 2003, http://www.defense-aerospace.com/afp/defense/0305021
70438.bmbz3over.html.
4. ‘Submarines fails to detect ship, collides’, Hindustan Times, 11 January
2008, http://www.hindustantimes.com/StoryPage/Print.aspx?Id=9aff9
82f-5c94-4439-a043-e4a5ef9bb6e5.
5. Charles Bremner and David Brown, ‘Silent: French and British crash subs
deaf to each other’, The Australian, 18 February 2009, http://www.
theaustralian.news.com.au/story/0,25197,25069697-31477,0.
6. P.K. Ghosh, ‘Short-sighted Submarine saga’, The New Indian Express,
28 August 2013, http://www.newindianexpress.com/columns/Short-
sighted-Submarine-saga/2013/08/28/article1755117.ece.
7. ‘US Navy asked to share sub detail’, BBC News, 1 May 2010, http://
news.bbc.co.uk/2/hi/uk_news/england/cornwall/8656110.stm.
8. Keiligh Baker and Richard Spillett, ‘Trainees may have been at the con-
trols of £1.1billion British nuclear submarine when it crashed into a
tanker off Gibraltar’, Daily Mail, 23 July 2016, http://www.dailymail.
co.uk/news/article-3703038/Commander-Britain-s-newest-submarine-
faces-court-martial-crash.html.
9. Gerry J. Gilmore, ‘Sub Skipper Reprimanded for Ehime Maru Incident’,
American Forces Press Service, 25 April 2001, http://www.defense.gov/
news/newsarticle.aspx?id=44945.
10. Andrew Scutro, ‘Tethered sailors washed off sub, report finds’, Navy
Times, 17 April 2007, http://www.navytimes.com/news/2007/04/
navy_submarineaccident_investigationfatal_070413w/.
26 S. BATEMAN
11. ‘US submarine, Japanese ship collide’, China Daily, 9 January 2007,
http://www.chinadaily.com.cn/world/2007-01/09/content_778451.
htm.
12. ‘Submarine rams into ship as navigator listens to iPod’, The Economic
Times, 11 April 2010, http://economictimes.indiatimes.com/news/
news-by-industry/et-cetera/Submarine-rams-into-ship-as-navigator-
listens-to-iPod/articleshow/5784306.cms.
13. Commander Michael Dobbs USN (Rtd), ‘Preventing Undersea Mishaps’,
US Naval Institute Proceedings, 136(6) June 2010, p. 23.
14. Jan Joel Andersson, ‘Submarine Capabilities and Conventional Deterrence
in Southeast Asia’, Contemporary Security Policy, 36(3) 2015, pp. 473–497.
15. Ibid., p. 478.
16. Ibid., p. 483.
17. Views expressed at the workshop on Submarine Acquisitions in Southeast
Asia: Problems and Prospects hosted by RSIS in Singapore 13 November
2015.
18. Roger Thornhill, ‘Modern Under Sea Warfare’, The Navy, The Navy
League of Australia, 69(4) October–December 2007, p. 24.
19. Kim Eun-jung, ‘S. Korean Navy offers insight into demanding submarine
life’, Yonhap News Agency, 4 August 2013, http://english.yonhapnews.
co.kr/n_feature/2013/08/02/57/4901000000AEN20130802008900
315F.HTML?0960e110.
20. Noel Towell, ‘Hello sailor! Navy offers $50,000 per man in bid to keep
sub fleet afloat’, The Canberra Times, 4 February 2016, http://www.
canberratimes.com.au/national/public-service/hello-sailor-navy-offers-
50000-per-man-in-bid-to-keep-sub-fleet-afloat-20160203-gml880.html.
21. Norman Friedman, Seapower as Strategy—Navies and National Interests
(Annapolis: Naval Institute Press, 2001), p. 261.
22. A comprehensive review of the legal standards governing submarine
espionage operations and the rights and duties of affected coastal states
is provided in James Kraska, ‘Putting Your Head in the Tiger’s Mouth:
Submarine Espionage in Territorial Waters’, Columbia Journal of
Transnational Law, 54 (16), 2015, pp. 164–247.
23. Desmond Rice and Arthur Gavshon, The Sinking of the Belgrano (London:
Secker and Warburg, 1984).
24. Sam Bateman, ‘Clashes at Sea: Why Chinese vessels harass US ships’, RSIS
Commentary, No. 27/2009, 13 March 2009.
25. UNCLOS Article 20.
26. Archipelagic waters are those within archipelagic baselines around the out-
ermost limits of the archipelago drawn in accordance with Article 47 of
UNCLOS. Archipelagic waters come under full sovereignty of the archi-
pelagic state with the exceptions of the rights of innocent passage and
archipelagic sea lanes passage.
27. ‘Wahid warns Singapore submarines not to stray’, Reuters News, 26 April

2000.
28. Norman Friedman, ‘Diesel Electric Submarines: What’s Next’, Asia
Pacific Defence Reporter, 34(10) December 2008/January 2009, p. 18.
29. Bryan Clark, The Emerging Era in Undersea Warfare (Washington DC:
Center for Strategic and Budgetary Assessments, 22 January 2015).
30. Vice Admiral Sangram Singh Byce IN (Rtd) and Dr. Rajni Kant Tewari,
Anti-Submarine Warfare: Fighting the Invisible Enemy (New Delhi:
Anamaya Publishers and National Maritime Foundation, 2006), p. 117.
31. Clark, The Emerging Era in Undersea Warfare, p. 8.
32. Ibid.
33. Gemma Deavin, ‘Submersible drones to render Australia’s new subma-
rines obsolete: Pentagon adviser’, ABC News, 22 May 2015, http://
www.abc.net.au/news/2015-05-22/australia-next-submarine-fleet-obso-
lete-due-to-drone-warfare/6488618.
34. Ridzwan Rahmat, ‘IMDEX 2015: RSN warns of risks in submarine prolif-
eration in Asia, proposes operational framework’, IHS Janes 360, 21 May
2015, http://www.janes.com/article/51579/imdex-2015-rsn-warns-of-
risks-in-submarine-proliferation-in-asia-proposes-operational-framework.
35. L yle Goldstein and William Murray, ‘International Submarine Rescue: A
Constructive Role for China?’ Asia Policy, 3, January 2008, pp. 167–183.
36. Ibid., pp. 176–177.
CHAPTER 3
Submarine Acquisition in Australia
James Goldrick
Abstract  Australia’s submarine acquisition programme is one of the

most ambitious in the region. It is framed by the country’s relationship
with Southeast Asia in an era of increased tension in the South China Sea
and rising tension between China and the USA. Australia faces a con-
siderable challenge in matching technological and industrial capability,
competing demands on its economy, the domestic political scene and its
operational requirements. This unique combination of challenges is com-
pared with the experience of the smaller navies of Southeast Asia.
Keywords  Australia · Naval modernisation · Southeast Asia

Strategic competition · Submarines
Australia’s Submarine Capability: The Requirement

Australia’s Defence White Paper 2016 has declared that, by 2035, around
half the world’s submarines will be operating in the Indo-Pacific region.1
There are good reasons for this growth in regional submarine forces and
they apply to Australia as well. As was emphasised in the Defence White
Paper, submarines are powerful instruments for deterring war and a
J. Goldrick (*) 
University of New South Wales, Sydney, Australia

30 J. Goldrick
potent weapon of war if deterrence fails.2 An effective submarine fleet

adds greatly to a nation’s military weight, and there is no current substi-
tute for the capabilities that submarines deliver in maritime warfare. In
Australia’s defence strategy, protecting critical lines of trade and commu-
nication and denying the use of the sea to a potential adversary are long-
standing priorities. In conflict, Australia will seek to preserve the use of
the sea for essential national transport and military operations and seek
to deny the same advantages to an adversary. Because of their unique
characteristics, submarines will play an essential role in these endeav-
ours. Submarines’ ability to operate covertly for extended periods and to
attack without warning means they can create uncertainty in the mind of
an adversary about where they are and whether it is safe to sail ships (or
other submarines). Their stealth has a pre-conflict value, too: in times
of tension, submarines can be used to gather information about other
countries’ capabilities or intentions, providing early warning. Submarines
can also be used for strike missions, including by inserting special forces
ashore to target enemy facilities. Submarines equipped with land-attack
missiles can also be an effective means to target onshore facilities and this
capability may be an option for Australia in the future.
Australia’s geography and vast areas of strategic interest further shape
the operational roles of its submarines, which in turn determine the
required size, capabilities and endurance. While there are claims about
the increasing vulnerability of submarines to detection, these must be
balanced against the realities of the environment. The Indo-Pacific sea
areas are generally extremely challenging for acoustic sensors, whether
passive or active, while other mechanisms for detection are much bet-
ter at localising a submarine than achieving initial contact. It is clear that
the emerging technologies of unmanned vehicles and pre-positioned sen-
sors will make it more hazardous for submarines to enter certain areas,
particularly those close to well-protected enemy bases and this may con-
strain them in the future. In their turn, however, submarines are likely to
be able to employ unmanned vehicles (including air and surface units) as
their own ‘agents of influence and action’ by sending them into the most
high-risk areas to reconnoitre or even attack.
These considerations shape Australia’s requirements for its subma-
rines: they must be fully interoperable with allied forces, particularly
those of the USA, have very long range and long endurance, be suffi-
ciently covert, with excellent sensors and armament to overcome sophis-
ticated threats and be able to operate in tropical waters. They should also
3 SUBMARINE ACQUISITION IN AUSTRALIA 31
have the inherent capacity to carry unmanned vehicles in order to be able

to take advantage of this emerging technology over the full life of the
new submarine class.
Australia’s Challenges in Acquiring

and Operating Submarines
Submarines are difficult. They are inherently complex and demanding of

technical expertise and national resources. They are also expensive, both
to purchase and to operate. The design requirements for engines, power,
fuel, weapon (and unmanned vehicle) capacity and provisions shape hull
size and affect the numbers of people needed to operate the boats, but
they need to be balanced against each other even more carefully than
in surface combatants. Design envelopes are tight and any errors in cal-
culating the parameters can have disastrous results, as recently demon-
strated when the Spanish Navy was forced to halt construction of its new
boats and initiate an extensive reworking of their design to overcome a
70-ton (or more) deficiency in their buoyancy.3
A key distinction between submarines is their main power source for
propulsion. Nuclear-powered submarines have the ability to operate
for extended periods underwater and at high speed without the need
for refuelling. Diesel-electric submarines, by comparison, are slower
(although they can achieve very fast ‘burst’ speeds for limited periods
underwater) and need to recharge their batteries at intervals, requiring
the use of noisier diesels and access to air. During these periods, they are
at much greater risk of detection, whether from sensors ‘listening’ for
their machinery or by radar (or even visual) contact with their schnorkel
(air mast). Air independent propulsion (AIP) systems have been devel-
oped, but these take up space and weight and generally provide greater
submerged endurance only at low speed. They also use special fuels,
which may require specialised facilities to replenish.
In theory, their superior transit and operational speeds, effectively
unlimited endurance and ability to remain submerged indefinitely make
nuclear submarines extremely attractive for a country with Australia’s
strategic requirements. However, apart from being much more costly
than diesel-electric boats in their own right (probably well over twice as
much per unit, assuming the same sensor and weapon fit), the acquisi-
tion of nuclear boats is not feasible for Australia at this time because of
the range and cost of their support systems—which the country does
32 J. Goldrick
not possess and would need to develop or acquire. Unlike every current
nuclear submarine operator, there is no domestic nuclear power industry
and Australia has only a single reactor for medical research and experi-
ments. However, there are very few (if any) other navies that expect
non-nuclear submarines to deploy at such great distances and main-
tain themselves in distant operating areas for so long. Having to meet
the operational requirements with a conventionally propelled boat thus
makes a unique, tailored-for-Australia design the only option for its
navy. This was recognised as far back as the 1970s and resulted in the six
Collins class boats, built in Australia to a Swedish design, which entered
service in the late 1990s.
Submarines need expert and well-trained personnel who are psycho-
logically suited to working for long periods in confined environments.
The RAN has faced significant difficulties in maintaining its expert work-
force. While some of these problems have resulted from factors related to
internal culture and management, as well as the challenge of holding onto
experienced technical personnel who are extremely attractive to domestic
and international industry, others have related to the availability of the
boats themselves. The workforce for a submarine fleet requires careful
planning, and the design of a new submarine class must make the training
and career requirements of its crews a key element. There are real prob-
lems achieving this with a force of six units or fewer unless extensive over-
seas support is available, including at-sea training facilities (such as those
required to qualify new commanding officers). Submarine skills take time
to develop and can degrade quickly. A shortfall in training days over even
a relatively brief period can have serious consequences lasting for years
and this is why serviceability problems in a small force can be so signifi-
cant. It should be easier, not harder, to crew a larger fleet because more
berths will be available for training and there is less likelihood of restric-
tions on training missions. A larger submarine force also makes it easier
for air and surface anti-submarine units to develop and maintain their
skills because there are more live ‘targets’ available. For all these reasons,
although the larger submarine fleet of twelve units which Australia plans
will be a formidable proposition in workforce terms, it will also reduce
some of the problems which have been endemic to the Australian effort.
The formidable task of designing a modern submarine is not within
the capability of Australian industry working alone, although there are
domestic skills that help make Australia a ‘smart customer’ and the new
boats will be built in-country. The involvement of an overseas partner
with recent experience in submarine design will be necessary—hence the

competitive evaluation process (CEP) involving three established subma-
rine-building countries (France, Germany and Japan) and their leading
submarine builders. Selection of the design offered by the French sub-
marine builder DCNS was announced in April 2016. While all the sub-
missions were described as being of ‘very high quality’,4 the superiority
of the French proposal was described at the time by Australia’s Prime
Minister as ‘absolutely unambiguous’.5 This may be a combination of
the efforts which the French have put into signature reduction in their
nuclear attack and ballistic missile submarines over the last few decades
with the likelihood that it has proved easier to adapt a moderately sized
nuclear attack boat for conventional propulsion than, as the Germans in
particular had to do, scale up a diesel-electric design to meet Australia’s
demanding requirements.
Understanding the design philosophy of the future submarine is an
important part of managing the boats throughout their lives, and so will
be control of intellectual property to allow progressive modification of
the design. This is not just a matter of where the new boats are built;
the through-life work on the future submarine will necessarily be done in
Australia as well, since taking an operational boat overseas for extended
periods of maintenance will be neither practical nor desirable. It is thus
clear that close relationships will need to be established between Australia
and France at the separate levels of government-to-government, defence
organisation-to-defence organisation, navy-to-navy and shipbuilder-to-
shipbuilder. The first formal design contract with DCNS was signed in
September 2016.6 Australia’s interest in US systems and weapons also
means that the future submarine design and build process will necessar-
ily be a three-way collaboration between Australia, France and the USA.
Lockheed Martin Australia was selected as the Combat System Integrator
at the same time as DCNS received its design contract.7
Being able to manage the security and intellectual property require-
ments of all three nations will be vital and DCNS received a sharp shock
with the partial publication in Australia of leaked documents relating to
the submarine design it has provided for the Indian Navy. This brought
a reminder from the Australian government that security remains ‘abso-
lutely critical’.8 Land-based test sites for the ship systems (particularly
propulsion) and combat systems and sensors will also be important in
reducing the risks inherent in a new design. Australia learnt this lesson
the hard way with the Collins class in the 1990s.
34 J. Goldrick
There is also the need to accept and factor into the budget any pre-
mium for in-country construction. Recent media reporting suggested
that 30% will be the estimated additional cost of building the new sub-
marines in Australia over constructing them in the designer’s yard over-
seas.9 Fierce debates rage amongst economists over the likely benefits for
the rest of the economy from such activity, or whether the opportunity
costs may be too great.10
Unless work on the future Australian submarine begins soon, there is
a possibility that a ‘capability gap’—a period during which the Australian
Navy does not have enough submarines to meet its operational tasking
and training requirements—will result sometime late next decade. There
is very little scope for further delay. Because of earlier tardiness in get-
ting the future submarine programme moving, Australia may have only
just enough time to produce a new fleet of submarines before the Collins
class boats retire. This assumes that all goes well with a life-extension
programme for the Collins boats—and even a 10-year extension leaves
little margin to further delay the future submarine programme.
There is, however, no compelling business case for an ‘interim’ sub-
marine capability to help bridge any gap. Australia would then have to
manage two or three classes of submarine over more than a decade,
and the cost, complexity and personnel challenges in doing that would
be likely to exceed the capacities of the Australian Navy, the rest of the
Australian Defence Organisation and the defence industry. The recent
release of the latest of five reports on the sustainment of the submarine
force has also given much more confidence in the ability to provide the
capability at the level required as well as an explicit warning about what
lies ahead. The improvements over the last few years have been called a
‘significant achievement’ and the Australian submarine force looks to be
in good shape, but there will be many challenges in managing the ‘inter-
twined’ requirements of the existing fleet and its replacement.11
Submarine Acquisitions in the Indo-Asia-Pacific:

The Anti-Submarine Warfare Implications
Given that the numbers and capabilities of submarines operating in the
Indo-Pacific region are increasing, this requires responses by Australia
additional to the modernisation and expansion of the submarine force.
While some countries are developing submarine capabilities able to pro-
ject force at great distances, many states in the region are strengthening
submarine capacities for coastal or limited-range missions, and such boats

could affect the operations of Australian naval forces. The inherent diffi-
culty of the anti-submarine warfare (ASW) task means that the advantage
will remain with those countries that have the necessary resources, expe-
rience and scientific expertise to field, maintain and operate advanced
ASW systems suitable for their particular operating conditions. Australia
has to be able to conduct increasingly challenging anti-submarine opera-
tions across a large theatre, both independently and in concert with allies
and coalition partners. The future submarine fleet will be a vital element
in our ASW force, but not the only one. Australia’s decisions to purchase
up to fifteen P8-A maritime patrol aircraft to replace the AP3-C Orion
fleet, build nine future ASW frigates to replace the eight Anzac class and
acquire 24 new SH-60R helicopters for embarked operations will all con-
tribute to the nation’s ASW capability.
It is likely that other regional nations will also seek to improve their
own ASW capabilities in response to the proliferation of new submarines.
Together, these two lines of development may become the real ‘naval
arms race’ in Asia. However, the nature of ASW suggests that many
developments will be largely hidden from the outside observer. They
will relate much more to the evolution of command, control and intelli-
gence, improved communications and remote sensors, as well as advanc-
ing the skills of surveillance and attack systems, than to the acquisition of
individual ships or aircraft.
The Challenges Facing Regional Submarine Forces

While most regional operators do not have the operational ambitions
of the RAN, most face the same challenges in maintaining an effective
capability. One which does have similar ambitions and is one of the larg-
est and oldest submarine forces in Asia, that of India, is facing problems
of serviceability in its diesel-electric classes, evidenced by the explosion
which resulted in the 2013 sinking of one of its Russian-built Kilo-class
submarines in harbour. Replacement of an ageing fleet has not proved
easy, either, with extensive delays in the construction in India of the
French-designed Scorpene class. The first of the class is likely to enter
service some five years late. Although there are 13 conventional subma-
rines in the Indian Navy’s order of battle, only three were available for
the fleet review in February 2016, in stark comparison to the turn-out
of practically the entire surface navy. The Indian Navy has additional
36 J. Goldrick
stresses on its technical expertise and material resources in that it is

introducing a new indigenously produced nuclear-powered ballistic mis-
sile submarine into service, as well as operating a leased Russian nuclear
attack boat. It is clear that the Indian Navy is also having to battle hard
for sufficient share of the defence budget—the percentage allocated to
the naval service has been falling over the last few years.
China itself, although modernising its nuclear and conventional
submarine forces as fast as it can, may have its own problems. China’s
technological challenges in areas such as noise quieting, underwater-
launched ballistic missiles, and torpedoes and propulsion remain formi-
dable.12 It can be no coincidence that China has repeatedly turned to
Russia for conventional submarines and it is likely that the Chinese have
been forced to copy many elements of Russian design in their own new
classes, just as they have reverse-engineered a number of European sys-
tems. Significantly, American estimates of the PLA Navy’s achievement
of a fully operational ballistic missile submarine capability have repeatedly
been revised as delays have become apparent in the Chinese programme.
Yet some navies may have even greater problems, particularly those
such as Indonesia and Malaysia which have only two or three boats. With
just a handful of submarines, it is practically impossible to promise con-
tinual operational availability and there must inevitably be a degree of
risk management in balancing maintenance, training, and operations.
Because of the need for ‘full cycle’ refits at intervals of anywhere between
five and ten years, it may even be necessary to accept that there will be
no effective capability on call for extended periods. Given the national
importance of submarines as a deterrent force for any country, this
means that the life cycle of the boats has to be considered very carefully
in relation to the developing strategic situation.
A domestic development agenda can complicate matters even further
than it has in Australia or India. Indonesia’s third new submarine will
be assembled at the national yard of PT PAL in Surabaya. It is likely to
take much longer to get into service and cost a great deal more than the
two units which are being built to the same German derivative design in
South Korea. This is a serious matter for the resource-limited Indonesian
Navy (TNI-AL). With the TNI-AL tightly constrained by its finances,
the requirement to use the domestic shipbuilder is likely to slow or
even arrest the long-desired expansion of the submarine force—and the
Indonesians have long wanted to increase the fleet to at least a dozen
units. There are similar problems with submarine refits. While it is highly
desirable for them to be conducted in-country, any force smaller than

six units means an inevitable ‘start-stop’ regime for the dockyard con-
cerned. This creates both inefficiencies and greater costs, since it is dif-
ficult to shift the expert workforce to other employment between refits.
The 30% premium estimated for the planned Australian effort may be
much greater in Indonesia’s case.
There is also a constant tension between national sovereignty and the
extent to which a small submarine force must rely upon external sup-
port. This is particularly critical for weapons and tactical doctrine.
As the Argentinean Navy discovered during the 1982 Falklands War,
there is a significant gap between the delivery of a foreign-built sub-
marine and achievement of full capability.13 Unless the buyer nation is
prepared to take a great deal on trust, it is necessary either to evolve
a close and open relationship with the provider nation and its navy to
share information, or the buyer must be prepared to expend substantial
resources in conducting its own weapon trials and tactical development.
Australia’s solution has been to strengthen its relationship with the US
Navy, embedding its own personnel in the American torpedo and com-
bat data system programmes and buying directly from the American
production lines. How close this relationship has become was demon-
strated by the fact that the first live warshot firing of the latest variant
of the main USN heavyweight torpedo, the Mark 48 CBASS, was con-
ducted by an Australian submarine. Singapore has achieved a great deal
with its own force, but this was very carefully managed from the outset
through a close relationship with the Swedish Navy and a staged transi-
tion to reliance upon national infrastructure and resources. This cannot
be cheap and the Republic of Singapore Navy now faces a new challenge
in switching from reconditioned Swedish boats to new construction
German units. Inevitably, this will require a whole new network of rela-
tionships and agreements to be developed and will create pressures on
Singapore’s inevitably limited pool of submarine expertise. Thailand faces
similar problems in the future with its plan to acquire Chinese subma-
rines. The Royal Thai Navy (RTN) has always had to operate within very
tight financial limits and this is unlikely to change. The RTN will need
not only to find the money for through-life support but make some dif-
ficult decisions as to how close its relationship will be with the PLA Navy
and Chinese industry.
Vietnam in particular, as perhaps the most ambitious of the regional
submarine operators—and certainly as the country which has created
38 J. Goldrick
a submarine force in the shortest time—must be facing its own chal-

lenges in evolving a relationship with Russia and the Russian Navy, as
well as the alternative (for some purposes) of India. Although Vietnam
claims that its submarines have begun operational patrols in the South
China Sea—and that they have gone to sea without any Russian advisers
embarked—it is clear that the Vietnamese will be relying upon Russian
and Indian training for some years yet. This will need to extend to live
training (particularly for prospective commanding officers) as well as to
classrooms and simulators. Vietnam has already had to increase the pay
and allowances of its seagoing submariners and is under some pressure
to improve the conditions of its technical support personnel ashore. The
extent to which Russia and India will support Vietnam with tactical doc-
trine and higher-level operational training is another open question, since
it will be some years before the Vietnamese Navy can possibly assemble a
sufficient base of expertise to experiment and innovate with weapons and
tactics. On the other hand, Vietnamese operations in the South China
Sea could serve as something of a laboratory in their own right and
Vietnam may be able to bargain with the data that its submarines gather
as an exchange for Russian and Indian information.
The Way Ahead

Despite all the difficulties which the acquisition of submarines presents
to any would-be operator, it is clear that they will continue to represent
an extremely attractive capability for all but the smallest navies in the
region. Their ability to complicate the situation and restrict the actions
of any would-be aggressor in the maritime domain remains unmatched
and, despite the rate of technological change, is unlikely to be challenged
for at least a generation. Asia is thus likely to see even more submarines
go to sea in the next few decades than it has since 2000 and any mari-
time rivalries will inevitably have an underwater dimension. At the same
time, however, in a complex strategic situation with developments not
only in platform numbers, but also in their sophistication, ‘token’ forces
will become much less credible. Some of the smaller navies may either
have to increase their efforts substantially—which will require significant
national commitment—or consider getting out of the game. This will
not be an easy choice.
Notes
1. Defence White Paper 2016 4.25, p. 90.
2. Defence White Paper 2016 4.25, p. 90.
3. h t t p : / / w w w. t e l e g r a p h . c o . u k / n e w s / w o r l d n e w s / e u r o p e /
spain/10073951/2-billion-Spanish-navy-submarine-will-sink-
to-bottom-of-sea.html and https://navaltoday.com/2016/07/19/spain-
approves-critical-design-review-of-s-80-submarine/ See also: Stephen
Saunders IHS Jane’s Fighting Ships 2016-2017 (Coulsdon, HIS, 2016).
4. http://www.minister.defence.gov.au/2016/04/26/prime-minister-min-
ister-for-defence-joint-media-release-future-submarine-program/.
5. http://adbr.com.au/france-triumphs-in-future-submarine-design-compe-
tition/.
6. http://www.minister.defence.gov.au/2016/09/30/first-contract-signed-
with-dcns-to-commence-design-phase/.
7. http://www.minister.defence.gov.au/2016/09/30/combat-system-inte-
grator-for-future-submarines/.
8. http://www.abc.net.au/news/2016-09-05/dcns-submarine-leak-’highly-
regrettable’:-turnbull/7815694.
9. http://www.theaustralian.com.au/national-affairs/defence/local-build-
adds-30pc-to-submarine-costs/news-story/d05094789f5920e0c24b-
09cb15fc4102.
10. h ttp://www.lowyinterpreter.org/post/2016/08/09/French-
submarines-and-Australias-21st-century-economy.aspx.
11. http://www.defence.gov.au/casg/Multimedia/Coles%20Beyond%20
Benchmark%20Report.pdf.
12. See US Office of Naval Intelligence report: The PLA Navy: New
Capabilities and Missions for the 21st Century (Washington DC, ONI,
2015), especially pp. 18–20. http://www.oni.navy.mil/Portals/12/
Intel%20agencies/China_Media/2015_PLA_NAVY_PUB_Print_Low_
Res.pdf?ver=2015-12-02-081233-733.
13. Robert L. Scheina, ‘Where Were Those Argentine Subs?’ U.S. Naval
Institute Proceedings, March 1984, pp. 115–120.
Author Biography
James Goldrick is a retired Rear Admiral, RAN. He joined the RAN in 1974,
and, after completing an Arts Degree at UNSW Kensington, graduated from the
RAN College at the end of 1978. He commanded HMA Ships Cessnock and
Sydney (twice), the multinational maritime interception force in the Persian Gulf,
the Australian Defence Force Academy (twice), Border Protection Command
and the Australian Defence College. He is an Adjunct Professor in the School
40 J. Goldrick
of Humanities and Social Sciences at UNSW at Canberra (ADFA) and in

SDSC at ANU, as well as a Professorial Fellow at ANCORS at the University of
Wollongong. He was a visiting fellow at All Souls College, Oxford University in
2015. He is a member of the Defence Honours and Awards Appeals Tribunal
and the Defence Force Remuneration Tribunal. He was a member of the Expert
Panel supporting the development of the 2016 Defence White Paper. He was
awarded a Doctorate of Letters (honoris causa) by UNSW in 2006. His books
include No Easy Answers: The Development of the Navies of India, Pakistan,
Bangladesh and Sri Lanka and Before Jutland: The Naval War in Northern
European Waters August 1914-February 1915 and, with Jack McCaffrie, Navies
of South-East Asia: A Comparative Study. Amongst other projects, he is currently
working on After Jutland: The Naval War in Northern European Waters June
1916–November 1918.
CHAPTER 4
Submarine Acquisition in Japan
Yoji Koda
Abstract  Japan has had considerable experience in submarines opera-

tions. A historical review of this experience suggests many lessons for
contemporary policy makers operating in a challenging strategic context
of increased tension in the South and East China Seas, an assertive North
Korea, and rising tension between China and the USA. For many years,
Japan has presented a model for regular and sustainable submarine acqui-
sition, but now it faces new challenges as it responds to the naval rise
of China. One of Japan’s responses is to make their hard-won expertise
more widely available to possible partners in Southeast Asia.
Keywords  Naval modernisation · Submarines · Japan · China’s military rise

Strategic competition · East China Sea · Southeast Asia
The Japan Maritime Self-Defense Force (JMSDF) has been operating

diesel-electric submarine (SSK) since its foundation in 1954. In addition
to that Imperial Japanese Navy (IJN) introduced its first Holland-type
submarine from the USA in 1905—the same year as the Battle of the
Preface: 100 Years Experiences of 100 Years ¥
Y. Koda (*) 
Japan Maritime Self-Defense Force (JMSDF), Tokyo, Japan

42 Y. Koda
Tsushima Strait in the Russo–Japanese war. The IJN subsequently built

241 SSKs and had operated the boats for 40 years, until Japan’s surren-
der in 1945.
The main mission of the IJN submarine force before the Second
World War, especially in the 1930s, was simple and clear. That was to
conduct anti-surface engagements using the legendary “Long Lance”
torpedo against the US Pacific Fleet—especially its battleship forces
transiting from their main bases in Pearl Harbor, Hawaii, or the West
coast of the US Mainland, to the Philippine Sea and/or Japanese waters.
The IJN, whose battleship force was only 60% of the size of the US
Navy, as enforced by the Washington Naval Treaty of 1922, tasked the
Combined Fleet’s submarine force to conduct a series of repeated tor-
pedo attacks against the westbound US battleship force, prior to the
expected big-gun engagement closer to Japan.
However, the progress of the Second World War in the Pacific was
very different from the scenario that IJN envisioned before the conflict
started. This included submarine operations. Except for some successful
engagements against the US Fleet, most of which happened in waters
around Guadalcanal and the Solomon Islands in the southwestern Pacific
in 1942, the Combined Fleet’s submarines were employed in many
transport missions to isolated Japanese-occupied islands in the Solomons,
from August 1942 and until the US Navy’s complete victory in the night
engagement of the battle of Cape Saint George in November 1943.
As the US forces’ counterattack operations against Japan progressed
in the Solomon Islands, the Combined Fleet started losing its air superi-
ority, at first gradually and then much more rapidly. Due to the fading air
superiority, the Combined Fleet’s surface forces operating in those areas
started suffering severe casualties that seriously weakened its overall oper-
ational capabilities.
Even so, the IJN still had one indispensable mission in those days,
to conduct a series of supply operations to Japanese-occupied remote
islands located at frontline and/or those which were left behind, in
waters controlled by the US-controlled waters. For the IJN, in 1943 and
afterward, these supply operations to isolated islands were only made
possible by using its submarine force. Only submersible vehicles could
safely navigate and maneuver under the overwhelming US airpower in
these operational theaters.
However, for the Combined Fleet’s submarine force, these transport
operations were totally unplanned and unprepared missions, and the
4 SUBMARINE ACQUISITION IN JAPAN 43
force started losing some of its best trained boats, which were, once,
counted as one of the most reliable assets against the US Pacific Fleet.
While the IJN’s submarine force was employed in indispensable transport
operations, which were most unsuitable missions for fleet submarines, the
force started suffering attrition in quantity in the later months of 1943.
Another factor in the IJN’s submarine operations in the Second World
War was an operational development that eventually became a real game
changer in anti-submarine warfare (ASW) operations in the Pacific.
Improvements and adjustments made by the US Navy were deathblows
to the Combined Fleet’s submarine force. By late 1943, the US Navy
had transplanted to the Pacific the new ASW equipment and tactics
which had been developed in the Battles of the Atlantic, which were the
real causes of the Allied victory over German U-boats.
Ironically, as casualties of once formidable IJN aviation forces had
accumulated to a dangerous level through a series of combats and
engagements, from Midway to the Solomon Islands, the Combined Fleet
had no other options but to shift its core striking force from exhausted
aviation units, to the relatively still-capable submarine force, in late 1943.
For example, the Combined Feet, for the first time, deployed large num-
bers of submarines for ambush and intercept operations against US car-
rier task force and invasion units operating near the Gilbert Islands, since
only a limited number of land-based aircraft were available to attack the
US invasion forces from nearby islands. However, in spite of a huge pre-
deployment estimate and high expectations for the submarine forces,
many of the boats were sunk. Because of the large losses, moreover,
there was no way to confirm the damage that the deployed submarines
had inflicted US forces invading the Gilbert islands. Even worse for the
Combined Fleet was that the real casualties of its submarine force—
losing of six fleet submarines out of nine deployed for the operation—
turned to be extremely serious.
These boats were the first victims of IJN’s submarine force, in quan-
tity, hunted by the US Navy’s ASW forces using new operational con-
cepts. This marked just the beginning of the full demise of the IJN’s
submarine force 20 months later.
There was another serious problem in the Combined Fleet’s inability
to gain lessons learned. Due to the large loss of the boats, the Combined
Fleet could not receive sufficient post-action reports, in terms of both
quality and quantity. Therefore, only extremely limited information
about the US Navy’s new ASW capabilities was reported by the surviving
44 Y. Koda
boats. So, the Combined Fleet had no idea about the real reasons for
the huge losses of its best boats, which had been expected to be used as
“trump cards” against the US fleet. Thus, the IJN failed to draw practical
lessons to counter the US Navy’s new ASW operations.
Unfortunately, the Combined Fleet, ignorant of the US Navy’s ASW
improvements, simply employed the same operational doctrines in sub-
sequent major naval engagements at Mariana Islands (lost 17/deployed
29) in June 1944 and the Philippines Archipelago (lost 7/deployed 14),
in October and November 1944, respectively. In those operations, the
submarine force had failed to establish their strategic goals, i.e., repel-
ling US invading forces and protecting the islands by destroying the US
Navy’s major units—especially aircraft carriers and transports. Instead,
the IJN submarines were annihilated in a series of Pacific Island battles.
By 1945, the Combined Fleet’s surviving submarine force was very
low after a huge attrition of its force in 1944, and those boats were
deployed to defend against the US invasion of Okinawa, from April to
June, but practically gained nothing.
Instead, the final attempt and struggle of the submarine force in
1945, was marked by a shift from ordinary anti-surface operations using
Long Lance torpedo, to attacks using “manned torpedoes.” The torpedo
system used for this operation was a modified Long Lance with one-
skipper’s seat, and was named “Kaiten” (reverse), with the strong hope
of changing the flow of the tide that was most unfavorable to Imperial
Japan at that time.
The earlier failure to stop US counterattacks both in Solomon Islands
and in mid-Pacific Islands theaters eventually forced the IJN and the
Combined Fleet to shift their main tactics from ordinary attacks to spe-
cial operations by manned weapons. The well-known “Kamikaze” was a
name for the special attack units in Japan’s aviation forces, but the IJN
also conducted manned attacks in all branches of the service. Kaiten was
the name for the submarine force.
For Imperial Japan in 1945, all of the last-gasp attempts to stop the
advance of US and Allied forces failed, and thus, the decisions to ter-
minate the war and to surrender were made in mid-August in 1945. In
summary, the IJN operated 156 submarines during the campaigns of the
Pacific war and lost 127 boats at the cost of about 11,000 crew mem-
bers.
The Success of US Navy Submarine Operations

In contrast to the IJN’s unsuccessful submarine operations, those of the
US Navy were extremely successful, especially in the interruption and
destruction of the Sea Lines of Communication (SLOCs) of resource-
poor Japan. For Imperial Japan, uninterrupted flow of natural resources,
foodstuffs, and troops was a fundamental condition for its war efforts
and national survival. So, the security of SLOCs was the clear Achilles’
heel of Japan. The US Army and Navy wisely identified Japan’s fatal
weak spot and conducted unconditional submarine warfare against
Japan’s shipping from the very beginning of the war in December 1941.
In this way, losses to Japan’s shipping caused by the US Navy’s sub-
marine forces had started accumulating gradually during 1942, when
the IJN still maintained operational momentum in the combat theaters,
and then rose rapidly from mid-1943, when the US Navy began wrest-
ing operational control from the Japanese. In this manner, the casualties
in both Japan’s naval and merchant shipping had reached unrepairable
levels by mid-/late 1944 and started to negatively affect both the war
efforts and peoples’ lives in Imperial Japan’s itself.
Below are losses of Japan’s merchant ships, in each year, in gross tons:
1942, 600,000 tons; 1943, 1,400,000 tons; 1944, 2,500,000 tons.
Due to the essential disappearance of Japan’s merchant shipping fleet
following the loss of the Philippines in early 1945, Japan lost its wartime
industrial manufacturing capabilities, and the average calories consumed
per adult in July of that year, i.e., after the fall of Okinawa, was estimated
to be below 1000 kcal/day, which raised the fear of the start of mass
civilian deaths through starvation. This cold reality was another key fac-
tor involved in Imperial Japan’s decision to terminate the war.
Lessons of IJN’s Failed Submarine and ASW Operations

in the Second World War
Japan drew five essential lessons from the experience of the Pacific war,
namely:
1. For Japan, as a resource-poor nation, SLOC security is the highest

priority for national survival.
2. Among all the naval warfare areas, ASW should be the most
important one for Japan.
46 Y. Koda
3. Technological advantage, in both ASW and submarine warfare, is

the key for successful naval operations. In particular, for example,
the new ASW capabilities in which IJN was far behind the stand-
ards of the Allied nations, such as radar, CIC, sonar, and subma-
rine torpedo fire control system (FCS), were systems which Japan
should have developed and used, at any cost.
4. With regard to ASW, air and surface ASW, using the best and most
modern equipment and tactics, will be the key for future survival
of our island nation from potential commerce raiding by a poten-
tial adversary.
5. The importance of gathering intelligence on an adversary’s equip-
ment technologies, operations, and tactics, as well as code-break-
ing, which was a hidden but a real contributor to the allied victory
in the Second World War, should be recognized.
The Postwar Revival of Japan’s Submarine Force

Japan’s surrender in August 1945 brought the total demobilization of
the once-powerful IJN, and the Combined Fleet was abolished. The sub-
marine force was not an exception, and all the few surviving boats were
examined technically by US Navy teams, before being sunk. Submarine-
related shore facilities were also thoroughly dismantled, in order to
disable Japan’s future rearmament. Therefore, the flow of Japan’s “sub-
marine blood” was interrupted for some time.
But, after a 9-year gap, Japan’s new navy, called the Japanese Maritime
Self-Defense Force (JMSDF), was established in 1954. Thereafter, the
JMSDF worked hard to start up various programs for the reconstruction
of new maritime forces in surface, air, submarine, and mine countermeas-
ures (MCM) branches. Upon rebuilding the JMSDF’s new capacity and
capability, precious lessons gained from the extremely high cost of the
combat operations of the Second World War were fully implemented with
the highest attention and determination. These lessons became the firm
building blocks for the JMSDF’s future strategy and force buildup plans.
With regard to the submarine force, the JMSDF received one of the
US Navy’s Second World War vintage “Gato” class boats—USS Mingo
SS-261—on August 15, 1955, at the US Navy base in San Diego,
California. This was the birth of the JMSDF’s submarine force. In this
context, August 15, 2015, also marked the 60-year anniversary of the
JMSDF’s submarine history. Thus, the US Navy’s submarine blood was
transfused into the once interrupted blood flow of Japan’s submarine com-
munity at that time. The year 2015 also marked the 100 years anniversary
of Japan’s submarine history, i.e., 40 years in IJN and 60 years in JMSDF.
The JMSDF has built nine classes of submarines, totaling 51 SSKs,
since 1955—and, as of June 30, 2016, 17 operational and 2 training die-
sel submarines are in commission. However, the way the JMSDF oper-
ates its submarine force is much different from that of the IJN. The main
mission of the JMSDF’s submarine force has been the conduct of ASW
operations against adversary submarine forces.
The US Alliance: A Strategy of Shield (JSDF) and Spear

(US Forces)
Due to the Government of Japan’s interpretation of Article 9 of the
Japanese Constitution (sometimes called the “Pacifist Constitution”), the
Japanese Self-Defense Force (JSDF) has been prohibited from possessing
the capability to conduct strategic strikes on enemy territory, which else-
where is considered a core operational function for the deterrence and
termination of war. This restrictive defense policy has caused the JSDF to
be developed solely as a protective force, without any significant power
projection capabilities.
In order for Japan, under its Pacifist Constitution, to make up for this
fundamental inherent defect, it has agreed with the USA to introduce
a unique strategic mission-sharing concept between the JSDF and US
forces within an alliance framework. This structure has been called the
“Spear and Shield” relationship, since the beginning of the Japan–US
Alliance. The meaning and concept of this “Spear and Shield” relation-
ship is that the missions of the JSDF are focused on strategic defense
operations, which also include protection of US forces, in and around
Japan. This posture relieves the US forces from conducting defensive
operations of Japan, when aggression against Japan is attempted.
At the same time, US forces will conduct strategic power projection
operations against the enemy’s homeland/territories and invading forces,
to bring the war to an end. Even in peacetime, because of the JSDF’s
responsibilities of homeland defense, this posture provides the USA with
political and operational flexibilities to deploy its forces to any crises in
the region or to operate from forward-deployed bases in Japan to estab-
lish its national objectives.
48 Y. Koda
Based on this concept, the military strategy of the JSDF has been
to build and maintain the defense posture of Japan by close coop-
eration between the JSDF and US forces under the Japan–US alliance.
Exceptions would be the outbreak of a military conflict, or aggression
of a small and limited size against Japan, and in those cases, the JSDF
should be solely responsible for taking appropriate military measures to
defend Japan. Therefore, the operational concept of the JSDF and US
forces has clearly been complimentary mission sharing, in which US
forces maximize their offensive operations, while the JSDF maximizes
their defensive operations. This is the fundamental essence of the so-
called Spear and Shield relationship between the JSDF and US forces.
The Main Mission of JMSDF: SLOCs Protection

Supported by ASW Capability
With regard to maritime operations around Japan, SLOC protection
has always been a key mission of JMSDF. In order for Japan, which is
without strategic strike capabilities, to receive US reinforcements from
across the Pacific Ocean and to guarantee safety of US naval forces oper-
ating around Japan, as well as to have carrier strike groups (CSGs) of
the US Navy concentrate on strike operations against enemy naval forces
and land targets, ensuring the safety and security of waters around Japan,
would be the most important mission for the JMSDF. At the same time,
for Japan, as a country of poor natural resources and food, the safety of
merchant shipping should also be continuously maintained for national
survival, not only in peacetime, but also in crisis or wartime. In Japan,
all of these operations are defined as the protection of “SLOCs” in the
northwest Pacific. By fully recognizing these simple realities, the JMSDF
sets clear strategic objectives from this point of view and defined its mis-
sions.
In this context, the main missions of the JMSDF have consistently
been the protection of SLOCs and then homeland defense, in case of the
threat of direct invasion to Japanese territory by enemy ground forces. In
support of this defense strategy and its two main missions, the JMSDF
has set ASW as its main task. It is needless to say that in developing its
maritime strategy and defense concept, the JMSDF has fully incorpo-
rated into its new strategy the hard but precious lessons learned from the
bitter experience of the Second World War in the Pacific.
The operational concept under the Japan–US Alliance was that in

case of a national or regional contingency, the US Navy would deploy
CSGs into the seas around Japan and/or western Pacific, and maximize
its strike capability, which was lacking in the JMSDF, to deter an enemy
from invading Japan and/or attacking the SLOCs around Japan. A key
to this initiative was to exclude firmly the enemy’s submarines, which
could be the greatest threat to disturb CVSG operations in Japanese
waters. Also, in order to secure the safety of SLOCs around Japan, sub-
marines were considered to be the most difficult threats to deal with.
As a result of this concept, with these two missions as a premise, ASW
became a main pillar for the JMSDF to achieve its missions. Even in the
present security environment, 25 years after the end of the Cold War, the
basic two factors: i.e., the Japan–US Alliance and Japan’s deep depend-
ency on imported natural resources, are unchanged—so, the protec-
tion of SLOCs in this regard has continued to be the main mission for
JMSDF, up to today.
In addition to these operational missions, Japan has been providing
various military facilities to US forces in and around Japan. This division
of labor between Japan and the USA may look unbalanced, but really
forms a functioning and complementary strategic relationship, both in
the bilateral operations theater and in mutual support arena, under the
“Shield (JSDF) and Spear (USF)” concept.
Tailored ASW as a Basic Force Building Concept of the

JMSDF
Within this framework, the JMSDF has set anti-submarine warfare
(ASW) as its most important mission priority to achieve its main objec-
tives, SLOC protection. In the JMSDF’s mission definition, SLOCs pro-
tection comprises two major elements:
1. Operations to maintain safety of maritime transportation, and

2. Support operations for US naval forces being engaged in the
defense of Japan and the region.
Under this concept, since its formation in 1954, the JMSDF started
building up all its forces in various operational branches, such as surface,
50 Y. Koda
air, and submarine forces, to serve as custom-made ASW forces. The only
exception to this was the MCM force.
In its National Defense Program Outline (NDPO) in 1976, the
Government of Japan set targets for the force strength of the JSDF’s
three component services and those of JMSDF are listed below.
Surface Force
Four Escort Flotillas: 1 DDH, 2 DDGs, 5 DDs with 8 ASW Helicopters
Ten Escort Divisions: 3 DD/FF for coastal ASW operations
Total: 60 plus Destroyers and Frigates
Submarine Force
Six Submarine Divisions: 2~3 SSs/Division for Choke Point ASW
Total: 16 SSs
Fleet Air Force
Eight Fixed-wing ASW SQDNs
Eight Helicopter ASW SQDNs
Total: 100 Fixed-wing ASW Aircraft and 100 Helicopter ASW Aircraft
The target force levels above clearly show the fundamental nature of the
JMSDF as an all-dedicated ASW force to protect Japan’s SLOCS.
1960s and 1970s: A Time of Training
In order for the JMSDF to become a real ASW force, it was clear that
for the training and readiness of related units—i.e., surface and fleet air
forces—it was essential to have good and tough targets/adversary forces
available for them to practice against in various exercises. This was the
initial rationale for JMSDF to introduce its first submarine in 1955.
So, the JMSDF started building a few small SSKs in the early days. For
example, in the 1956 ship construction program, the JMSDF built a sin-
gle domestically designed SSK1 (1100/1400 ton: Note-1), and thereaf-
ter two classes—totaling four small SSKs (750/950 ton)—followed in
the 1959 and 1960 programs.
At the same time, the JMSDF, even immediately after its foundation,
had a strong intent to build a robust functioning SSK force in order to
cope with future maritime threats from the Soviet Pacific Fleet, under the
Japan–US Alliance umbrella. In this regard, producing a large number of
well-trained submariners, over a short period, was one of the key elements
in realizing this objective. These five small boats, which were relatively
low level in their performance compared to international standards at that
time, really contributed to realize this goal, and almost all submariners of
JMSDF in 1970s and 1980s were trained and qualified in them.
1970s–1980s: First Real Mission Capable SSKs

From 1961 and after, the JMSDF started building relatively large SSKs—
totaling five boats (1650/2250 ton) for its first practical missions. Hull
design was low underwater drag conventional, but non-teardrop type.
This class was designed to meet surface and subsurface maneuvers and to
establish missions.
The SSK forces might be counted as having the capability to attack
firstly Soviet surface forces transiting from the Sea of Japan to the Pacific
Ocean through three strategic straits in and around Japan or, secondly,
Soviet landing forces approaching Japan’s mainland.
However, the JMSDF at that time still remained in a growing stage as
an ASW navy, and the main role of these larger boats in peacetime was
to serve as tough-to-detect and die-hard targets for friendly ASW forces.
Thanks to these boats, with better performance than the initial five small
boats, the ASW capability of JMSDF greatly matured in comparison with
US Navy standards. The JMSDF was steadily becoming a capable force
to support its allied partner, the USN 7th Fleet, in this period.
1970s–1990s: Using Technology to Become a Real ASW

Force
In this period, the US Navy, which was an all-nuclear propulsion subma-
rine navy, fully shifted to “teardrop” or “cigar”-like-shaped boats, with
a single propulsion shaft to improve underwater maneuverability. This
design also realized an idea to install a huge spherical/cylindrical sonar at
the bow, to improve the boats’ acoustic performance, and this was a criti-
cal factor for enabling more effective submarine ASW than before.
In the mid-1970s, the Soviet Union’s growing submarine force in the
Pacific was recognized as a major threat to the JMSDF and the US Navy.
Therefore, the JMSDF reviewed its ASW concepts to meet the situation
and launched a series of robust 5-year force development programs after
1977. This is exactly the time when the Government of Japan issued its
52 Y. Koda
first NDPO with an ambitious force strength target, as mentioned above.

The main force structures to meet this objective were:
1. 100 P-3Cs for wide-area ocean surveillance and ASW,

2. 60 Destroyers for escort operations for high-value units, and
3. 16 Submarines for controlling three strategic Japanese straits,
against the Soviet Pacific Fleet.
It was clear that the main operational objective of this force structure was
to make JMSDF a real ASW force.
Fully recognizing the advantages of new hull designs and original
ASW missions, JMSDF started constructing three classes of teardrop-
hulled boats. The first group of seven boats (Uzushio class: 1850/2400
ton) were built, starting in 1967. From 1975, an enlarged and improved
class of ten boats (Yushio class: 2200/2900 ton) were built. One note-
worthy improvement on this class was made by introducing a Harpoon
launch capability, and Harpoon missiles were installed as standard equip-
ment from the fifth boat of this class and after.
Following the second class, the JMSDF started construction of fur-
ther improved SSKs with the same teardrop style, but a slightly larger
hull, in 1986. The displacement of the new class (Harushio class) had
reached 2450/3200 ton, and seven of these boats were built from 1986
to 1992. Submarine towed array sonar (S-TASS) was installed on this
class, for the first time in the JMSDF, in order to improve their ASW
capabilities.
These three classes of SSKs, especially the second and third classes,
became the first real ASW capable submarines in JMSDF history and
were postured against the SSKs/SSNs of the Soviet Pacific Fleet. Their
operational concept was to patrol and ambush adversary units at three
strategic straits in and around Japan.
And After: Fully Matured ASW and Multi-Mission SSKs

In the second half of the 1980s, lessons from the previous three classes
of real ASW SSKs with teardrop hull were fully examined, and new
operational requirements for follow-on boats were developed. The new
boats, which tried to meet all of the emergent operational requirements,
were planned and designed, and the first boat was authorized in JFY
1993 as JS Oyashio. This class displaces 2750/3500 ton. Prominent fea-

tures of this class are:
1. Combination of single hull (central part) and double hull (fore and
after parts) with cigar-shaped design,
2. Fully digitalized and integrated command and control system, and
new sonar system with rubber dome and flank arrays,
3. Installation of acoustic tiles, and
4. Introduction of further improved noise reduction measures.
In total, six boats were built, and all of them are still operational and in
fleet service. Additionally, a newly developed Type 89 torpedo, which is
considered to be an equivalent with US Navy’s Mk-48, was introduced
for this class. This torpedo really enhanced attack capabilities of the
Oyashio class.
In this period, the JMSDF initiated a new program to introduce an
air-independent propulsion (AIP) system that was expected to make up
for the inherent inferiority of underwater endurance of the diesel-electric
submarine. After intense paper examinations, the JMSDF selected
Sweden’s Stirling engine (SE) as an actual power plant for evaluation and
testing, and imported one set. Then, JMSDF spent 2 years shore-testing
this AIP system.
Then, an 8-meter (26 feet)-long hull compartment, carrying four sets
of SE and oxygen tanks, was inserted into the main hull of JS Asashio,
the last boat of the Harushio class (2450/3200 ton), and a precise and
in-depth shipboard test was conducted for another 2 years.
After solving all the problems and malfunctions found in the tests, the
safety and reliability of the SE were certified and confirmed for opera-
tional use. Then, the plant was finally authorized to be put into the fol-
low-on Soryu-class submarines. This class is an improved version of the
Oyashio class with new integrated sonar and combat systems.
One of the reasons why construction of Oyashio class was terminated
only at the sixth boat was an estimate that this long-waited SE-AIP sys-
tem would be available in time for the JFY-2004-construction boat,
and the JMSDF shifted from Oyashio design to a new hull in order to
accommodate putting the SE onboard. SE at this time was really consid-
ered to be a game changer in submarine’s ASW operations for the com-
ing years.
54 Y. Koda
JS Soryu (2950/4200 ton) was funded and built in the JFY 2004 pro-
gram, and six sisters are now in fleet service, and four are under con-
struction. Then, from the JFY 2015 boat (the 11th boat in the series),
a newly developed lithium-ion battery system will replace the SE, while
maintaining all the other systems of the original Soryu. Thus, the boat
with a new battery is still designated as a Soryu class.
AIP or the Lithium-Ion Battery: Potential

and Problems
There are several AIP systems for submarines in the world today; how-
ever, when all the merits and demerits of each type of AIP are taken into
account, SE and fuel cell (FC) have the most potential for future use in
SSKs. Thanks to its high reliability, low life cycle cost, and low initial
purchase cost, SE has a good chance to survive the race. However, due
to its fully matured status in technology as an AIP, there will be little
room left for SE to realize future growth or substantial improvement in
its performance.
By contrast, FC is still less matured in technological development
than SE, but areas of applications for FC in non-military markets, such
as automobiles and household appliances, have been expanding quickly
in the world. So, FC-related industries and other research organiza-
tions have been allocating a lot of resources for development efforts in
order to improve its reliability and endurance, as well as reduce costs.
These have resulted, for example, in the introduction of new catalyst and
hydrogen storage alloys. Thus, FC has greater development potential as a
submarine-installed AIP system in the future, compared to SE.
Having said this, however, in JMSDF’s experience, AIP has not
turned out to be a game changer, as originally expected, in underwater
warfare from operational point view. A key element of this issue is the
fact that AIP is really an air-independent engine, but at the same time,
AIP is an oxygen-dependent engine too, so running out of the oxygen,
that has to be carried onboard means the end of AIP for that patrol.
When this happens, AIP becomes only extra deadweight and takes up
space for no further use in SSK operations.
Especially and hypothetically, the average endurance of the two
types of AIPs onboard today’s diesel boats (2–4000 tons) is said to be
about 3 to 4 weeks, and this is about one-quarter of the average general
deployment period (i.e., about 3 months, depending on the type of mis-

sion) of ordinary SSKs. In this case, an SSK normally allocates about 1
month each for deploying to and from its patrol area, and keeps the rest
of 6 to 8 weeks for operations on station. As such, a deployed SSK can
only use AIP for about half of the on-station period, and for the remain-
ing half of the operation, it depends on conventional lead batteries.
The weight and space of onboard AIP in this lead battery-driven period
simply becomes a drag-generating element and makes no operational
contribution. In addition to this, extremely weak power output limits
operational maneuvers at high speed, so loading of additional lead bat-
teries as backups is normally required to make up for this limitation, but
requires additional weight and space as well.
In summary, a decision on the appropriate use of AIP and lead bat-
teries is a key for success of operations and survival of the boat, and in
this regard, AIP partially solved problems of conventional diesel-electric
submarines, but not fully. This is the reason why the JMSDF is reevaluat-
ing SE and getting rid of over-expectation on SE as a game changer in
underwater warfare.
The only solution for this problem is to develop a new super high-
performance battery that replaces both SE and lead battery systems. The
answer to this problem is the rechargeable lithium-ion battery with much
higher performance capability than lead battery.
With regard to lithium-ion battery, the JMSDF and battery manu-
facturing industry have spent about 10 years for its development, first
as a future potential replacement for conventional lead battery. As the
JMSDF has accumulated AIP experience, it has also conducted years-
long evaluation tests between SE and lead batteries propulsion systems,
and lithium-ion system. JMASF came to a conclusion with strong confi-
dence that the latter had certain degrees of advantages over the former in
various evaluation elements that were mentioned above. This is the back-
ground reason for JMSDF’s shift from AIP Soryu at the tenth boat to all
lithium-ion Soryu from the eleventh boat.
For the JMSDF, both Oyashio-class and Soryu-class submarines are
the two most satisfactory boats to date in all aspects. Keeping ASW as
their primary mission, these 17 boats (and 22 boats by the early 2020s2)
of two classes are capable of conducting all JMSDF tasks, such as ASUW,
strategic surveillance, intelligence collecting, and support for other
branches of JSDF services.
56 Y. Koda
Conclusion
As the strategic environments in Asia Pacific region change, so do the
operational concepts of the JMSDF submarine force, while keeping
ASW as its main mission. In order to meet today’s security challenges,
the JMSDF’s submarine force is shifting its traditional mission of choke
points control from northern Japan to southwestern Japan. Also, it is
clear that maritime operations around the Japanese archipelago that sur-
rounds the East China Sea will be more important than before.
So, the JMSDF decided to increase the number of its submarines from
16 to 22 in 2010. This enlarged force will provide a good deterrence
force for Japan against neighboring nations by its chokepoints control
and ASUW capabilities. Even a large surface combatant, such as an air-
craft carrier, could be severely damaged and eventually be sunk by an
anti-ship missile and torpedo attack by submarine(s) which might inflict
killer flooding in the ship.
However, in order for the JMSDF to maintain the high quality of sub-
marines, which have been treasures of JMSDF, the tempo of submarine
expansion should be incremental, roughly, to build about one boat every
year. This is the bottom line to keep real war fighting capability balanced
with operational safety in the JMSDF submarine force.
Recently, Japan’s submarine community was involved in the recent
bidding for the next-generation submarine of Royal Australian Navy
(RAN). The final year-long decision of Australian Government to select
France’s proposal was a matter influenced by Australia’s domestic politi-
cal situation and a sovereign matter for that country. As such, there is
no room for Japan, which was one of three bidding nations and a loser
of the game, to raise any objections to a decision made by Australian
people. So, whatever the hard and sincere challenges Japanese team
made through the process to achieve victory, Japan clearly accepts the
Australian decision and is happy to respect the decision. Japan sincerely
hopes that the Franco-Australian project succeeds and that the next-gen-
eration boat will be totally successful. The new boat will surely enhance
and improve the multilateral operational posture between Japan, USA,
and Australia to meet future challenges against the stability of the Indo-
Pacific Region. The last thing Japan would want to do is to weaken our
decades-long close relationship with Australia. We should not make any
political gift to any willful third nation in the region.
Lastly, I would like to introduce my strong belief and confidence in

the JMSDF’s submarine force, as a former CinC JMSDF Fleet. Without
a well-trained submarine force, real capable surface and air ASW forces
are impossible. Without real capable surface and air ASW forces, a real
combat and capable submarine force is also impossible—and the overall
force structures, strategy, and missions of JMSDF have been developed
to fully realize this concept for more than 60 years.
Today, the JMSDF’s surface and fleet air force are the world’s best
ASW forces both in quality and in quantity, and our SSK force is the best
in the world.
In addition to them, there is one more thing that improves and pol-
ishes our submarine force that is Japan’s geographical features. In other
words, Japan’s proximity to former Soviet/Russia, North Korea, and
China will always shape and train the JMSDF’s submarine force. In par-
ticular, Russia and China will always conduct their own ASW surveil-
lance against JMSDF’s boats, all the time, at any area around Japan. For
the JMSD submarine, once it gets underway, it has no other option but
exposes itself to the ASW forces of those two navies. In this context, the
operational environments of JMSDF submarines have been most suit-
able to train and raise real combat-ready submariners, who have suffi-
cient experience of being the object of intense ASW surveillance from
unfriendly navies, for more than half a century.
If I take all the elements discussed here, I as a former CinC FLT have
a strong confidence and pride, which is not a rootless self-conceit, in the
JMSDF’s submarine force.
Notes
1. Displacements of each class in this article are standard/submerged. Source:
Sekai-no-Kansen (Ships of the World), September 2015 (p. 821). The
Definition of JMSDF Standard Displacement is Full-load Displacement—
(minus) Fuel, Freshwater, Munitions, Crew, and Consumables.
2. In the National Defense Program Guideline of 2010, the Government of
Japan decided to increase the number of submarines in the JMSDF from
16 to 22, in order to meet regional security situations.
58 Y. Koda
Author Biography
Yoji Koda (VADM (Ret.)) Admiral Koda was in the class of 1972 at the
Japan Defense Academy and spent 36 years in the JMSDF as a qualified Surface
Warfare Officer. He took various command billets, including Commander-in-
Chief JMSDF Fleet, and his last shore staff assignment was as Director General
for Strategy, Plans and Policy in the Maritime Staff Office. After his retirement,
he spent 2 years as a Senior Fellow at the Asia Center, Harvard University, focus-
ing on PLA Navy strategy and is currently serving as an advisor to the National
Security Bureau.
CHAPTER 5
Submarine Acquisition in Indonesia
Ristian Atriandi Supriyanto
Abstract   The reasons for submarine acquisition in Indonesia are

explored against the general strategic context in Southeast Asia and
the country’s unique approach to the challenges it identifies is demon-
strated, not least through the concept of Indonesia as a Global Maritime
Fulcrum. The contribution that submarines are thought to make to
Indonesia’s security is discussed and the technological, economic and
demographic problems their acquisition poses are identified.
Keywords  Naval modernisation · Submarines · Indonesia · Global

Maritime fulcrum · Stability in Southeast Asia
Submarines, have been, are and will be central to Indonesian naval devel-
opment. In commemoration of the 50th anniversary of the Indonesian
Submarine Corps (Korps Hiu Kencana), Indonesia’s then Defence
Minister Juwono Sudarsono wrote in December 2008 that “irrespective
of the country’s financial situation, the Indonesian military, (TNI) must
acquire submarines because of their excellent deterrence value”.1 Indeed,
on 24 March 2016, South Korean shipbuilder Daewoo Shipbuilding and
R. Atriandi Supriyanto (*) 
Strategic and Defence Studies Centre, Australian National University,
Acton, Canberra, ACT 2601, Australia

60 R. ATRIANDI SUPRIYANTO
Marine Engineering (DSME) at its Okpo shipyard launched the first of

the three Type-209/1400 diesel-electric submarines, KRI Nagabanda,
the Indonesian Navy had ordered in December 2011.2 Costing around
USD1.1 billion in total, the three submarines represent an enhanced ver-
sion of the South Korean Chang Bogo type. Shortly thereafter, Indonesia
also announced that it would build a third submarine base in the Natuna
Besar Island, the largest island in the Natuna Islands located in the South
China Sea.3 This submarine base will be paired with Indonesia’s ambi-
tions to acquire up to twelve new submarines as was outlined in the
15-year military modernisation programme beginning in 2010.
Indonesia’s submarine acquisition is by no means unique in the
region. In 2011, Jane’s Navy International estimated that Southeast Asia
would acquire at least 13 submarines by 2020.4 Yet, the persistence of
Indonesian submarine ambitions begs some fundamental questions: Why
did Indonesia acquire and continue to operate submarines? How do sub-
marines fare in Indonesia’s naval strategy? What are the challenges and
implications of Indonesia’s submarine ambitions to regional stability?
This chapter argues that three imperatives underline Indonesia’s deci-
sion to continue operating submarines: historical experience, geographi-
cal context, and the concept of “strategic funnels”. It cautions, however,
that these imperatives do not make Indonesia immune to the operational
and strategic challenges common to other submarine operators.
Historical Experience
The continuous service of Indonesian submarines and the important
roles they played in history left a deep and long-lasting impression in
Indonesia’s naval traditions. Indonesian submarines were involved in
major operations that remain pre-eminent in national historical narra-
tives. The importance and contributions of Indonesian submarines in
these events have created the imperative to retain them: since submarines
were important in the past, they are important at present and will remain
so in the future. Relinquishing the submarine would be tantamount to
betraying the critical roles it played in Indonesia’s history.
Compared to other Southeast Asian navies, with almost six decades
of experience, Indonesia is the region’s longest submarine operator.
After Thailand decommissioned its Matchanu-class in 1951, Indonesia
became the first Southeast Asian submarine operator with the two
Whiskey-class boats acquired from the Soviet Union via Poland in 1959,
the RI Tjakra and Nanggala. Ten more Whiskey boats followed until
5 SUBMARINE ACQUISITION IN INDONESIA 61
1962: RI Trisula, RI Tjandrasa, RI Nagarangsang, RI Nagabanda,

RI Wijajadanu, RI Hendrajaja, RI Pasopati, RI Tjudamani, RI
Bramasta, and RI Alugoro.5 The acquisitions of these boats came as part
of Indonesia’s naval modernisation drives during the 1950s and 1960s
that sought as much foreign assistance as the navy could possibly get.6
These boats arrived when Indonesian President Sukarno’s regime was
confronting the Netherlands in the territory of West Irian (West New
Guinea) in 1961–1963.
The Whiskey experience left a profound legacy in Indonesia’s naval
history. Since Indonesia was the largest single submarine operator
in Southeast Asia, the Whiskey boats conjured up a sense of past pres-
tige that motivates Indonesia to keep operating submarines at present.
One Indonesian admiral wrote that the twelve Whiskey boats made the
Indonesian Navy “one of the most powerful naval forces in the Asia-
Pacific region—making it a regional power and serving as a source of
pride and confidence for her people…Having learned from its previous
experiences, the Indonesian Navy has planned to gradually increase the
size of its submarine force in the years to come”.7 Anyone can easily dis-
miss the admiral’s claim. But the truth in his claim matters much less
than what he and other Indonesians perceive to be true. In the same
way, Indonesia likes to reminisce about its erstwhile blossoming military
cooperation with the Soviet Union/Russia, the Whiskey experience, as
with other Soviet arms Indonesia imported, “might have become rather
romanticised over time, but nevertheless, it occurred when Indonesia’s
conventional military strength was at its height”.8 Without its submarine
fleet, the navy would feel devoid of a status that it once enjoyed.
The advent of the New Order government in 1967 under the anti-
communist Army General Suharto led to the deterioration of Indonesia’s
relationships with the communist countries. Technical support and
maintenance for Soviet naval armaments became available only on a
commercial basis which Indonesia could not afford. Australian intelli-
gence assessed in 1969 that without support from a major power, such
as the Soviet Union, “the size and effectiveness of the Indonesian navy
will continue to diminish” with “few ships capable of putting to sea and
even fewer with serviceable weapons and electronics system”.9 At most,
the form and scale of attack involving Indonesian submarines would be
small-scale raids, infiltrations, and mining operations in and around the
Island of New Guinea and Australian northern waters. The capability
of Whiskey-class submarines gradually deteriorated until the last of the
class, KRI Pasopati, was retired in January 1990. But before Pasopati
was officially retired from service, the Indonesian government had pur-
chased two U-209-class boats from the then West Germany, KRI Cakra
and KRI Nanggala10 in 1981–1982. KRI Cakra and KRI Nanggala
remained Indonesia’s only submarines as of April 2016.
Although DSME refurbished the U-209 boats, the Indonesian navy
reasoned that more submarines were needed for patrols. Earlier plans
to procure six second-hand Type-206 boats from Germany, however,
were shelved soon after the 1997 Asian Financial Crisis hit Indonesia
hard.11 In 2005, the navy submitted its “Green-Water Navy” proposal to
achieve a 274-ship proposal that was later incorporated into Indonesia’s
military modernisation plan beginning 2010: the “minimum essential
force” (MEF). Divided into three stages (2010–2014, 2015–2019, and
2020–2024), the MEF plan outlines Indonesia’s ambition to acquire
up to twelve submarines by 2024.12 After it had shown initial inter-
est in the Russian Kilo, German–Turkish enhanced U-209, and French
Scorpene, Indonesia finally decided to opt for the South Korean Type-
209 Chang Bogo. The decision was intriguing, for the Kilo boats were
what the navy really wanted since Admiral Slamet Subijanto became chief
in 2005. According to Soebijanto, the desire for Russian boats owed to
their “formidable reputation” and competitive prices, in addition to the
“historical” attachment to the Whiskey during Indonesia’s naval heyday
in the early 1960s.13 By October 2006, the navy had submitted a pro-
posal to the Indonesian to procure twelve Russian submarines, including
four Kilo and two Amur class by 2024.14 Even after Indonesia decided
to opt for the Korean Type-209, the navy still keeps the Kilo option on
the table for the acquisition of the six to eight remaining boats planned
under the MEF.15 The decision to go with South Korea probably owed
to the Koreans’ offer with more quantity for money compared to other
bidders.16
Moreover, Indonesia is no stranger to Korean naval shipbuild-
ers. In the 1970s and 1980s, Indonesia ordered from Korea’s Tacoma
Masan four fast attack craft (Mandau-class) and six landing ships (Teluk
Semangka-class). Indonesia also bought from DSME a Makassar-class
landing platform dock (LPD) in 2000 and licence-built four more in
2007–2011. Being Seoul’s single largest overseas defence export to date,
the contract for the Nagahanda-class also came with “offset” policy to
train 206 Indonesian naval engineers from PT-PAL at DSME shipyard
who will build the third submarine in Indonesia.17 Having overhauled
KRI Cakra and KRI Nanggala, respectively, in 2004–2006 and 2009–

2011, in November 2015 DSME also submitted its bid for the mainte-
nance, repair and overhaul (MRO) for KRI Cakra to enable it to operate
until 2024.18
The fact that the Indonesian submarine fleet has been operating con-
tinuously since 1959 also gave it the chance and experience to assume
a multitude of roles; some of which are more usually reserved for sur-
face forces: intelligence gathering, special commando operations, naval
diplomacy, and constabulary missions (see Fig. 5.1). Due to their
stealth, intelligence gathering constituted the main role for Indonesian
submarines as attested during the West Irian (West New Guinea) dis-
pute against the Dutch, the Confrontation against the British-backed
Malaysia, and the deployment of International Force in East Timor
(INTERFET).
Intelligence was critical to identify the operational patterns of enemy
warships in preparation for hostilities and to support covert amphibi-
ous infiltrations of commandos into enemy territory. In July 1962, for
instance, six submarines were dispatched to gather intelligence on Dutch
shipping traffic between Hollandia (now Jayapura) and Biak where most
of their forces were concentrated.19
At the height of the Confrontation in September 1964, RI Alugoro
observed the transit of Royal Navy task force led by HMS Victorious
through the Lombok Strait on the surface after Indonesia had ear-
lier refused it transit through the Sunda Strait that brought the two
Joint exercises
7% Others
11%
Special Ops
7%
Intelligence
gathering
68%
Show the
flag
7%
Fig. 5.1 Indonesia’s submarine operations, 1959–2012. Source see Appendix

countries to “the brink of war”.20 Although Jakarta’s offer of the

Lombok Strait was a compromise, it also “enabled [the Indonesian
Navy] to screen the task force more effectively from their main base
in Surabaya and placed their warships in a better position to attack if
ordered”.21 KRI Cakra and KRI Nanggala also “operated with tactical
flare” and shadowed the INTERFET maritime forces as they were land-
ing in East Timor in September 1999, which prompted the INTERFET
“to both intensify the protection of its maritime lines of communication
and to launch an intensive search to locate them”.22
Submarines also proved valuable in covert insertion or infiltration
of special commandos. These commandos would carry out sabotage
against the Dutch forces in West Irian and prepared the ground for the
all-out amphibious invasion, codenamed Operation Djajawidjaja, to
be launched on 26 August 1962. On 12 August 1962, RI Tjandrasa
infiltrated fifteen commandos into West Irian, while three other subma-
rines similarly tasked for the mission, RI Nagabanda, RI Trisula, and RI
Nagarangsang immediately aborted the mission after the Dutch Navy
had detected them.23 By 1962, Indonesia had infiltrated into West Irian
a total of 1200 paratroopers and 340 amphibious infiltrators.24
Finally, submarines also performed a unique role usually reserved
for surface forces: naval diplomacy and constabulary missions. Under
Operation Gugus Tugas X on 17 October 1965, RI Nagarangsang and
RI Bramasta, and two Komars- and two Jaguar-class torpedo boats, set
sail to Karachi in a clandestine operation to support Pakistan and signal
Indonesia’s displeasure towards India following the 1965 Indo-Pakistan
War in September.25 Throughout the 1970s and 1980s, RI Pasopati also
conducted naval exercises with partner navies and anti-poaching missions.26
Geographical Context
Located along the main shipping routes between the Indian and Pacific
Oceans, Indonesia’s archipelagic geography naturally places it as a mari-
time crossroads of the world (see Table 5.1). This geographical context
underpins Indonesia’s two important maritime strategic predicaments:
the notion of national unity amid a fragmented archipelagic geography,
and the dilemma of a maritime crossroads. Both strategic predicaments
expose Indonesia’s sense of vulnerability against foreign maritime pres-
ence in the archipelago. Such vulnerability necessitates the retention of
submarines in the fleet.
Table 5.1 Indonesian
Islandsa 17,508
maritime characteristics Land 1,890,739 km2
Sea 6,315,222 km2
Territorial sea 282,583 km2
Archipelagic waters 3,092,085 km2
EEZ 2,936,345 km2
Continental shelf 2,749,001 km2
Coastline 99,093 km
Source Indonesian Geospatial Agency

aCIA World Factbook 2015
The archipelagic geography presents Indonesia with the challenge of

building, maintaining, and enforcing national unity. When independence
was proclaimed in 1945 and recognised in 1949, Indonesia was more of
a state than a nation. Rebellions followed soon after in Maluku, Aceh,
West Sumatra, Sulawesi, and Papua, with some still simmer at present.
For Indonesia, nation-building seems to be a perpetual work in progress.
While the struggle against colonialism formed the ideational basis of
national unity, it is only enforceable when the physical control of the seas
between Indonesia’s islands is assured. The words “land” and “sea” are
lumped together into a single word to describe “homeland” or tanah air
in the Indonesian language (Bahasa Indonesia).27 The notion of national
unity also underlined the formulation of Indonesia’s core maritime
policy principles: the 1957 Archipelago Principle and the 1967/1973
Archipelago Outlook (Wawasan Nusantara) that construct Indonesia
as a single unity in political, economic, sociocultural, and security terms
in spite of a fragmented archipelagic geography.28 Any attempts and
endeavours, domestic or foreign, to exploit the sea for the purposes of
impeding or frustrating Indonesia’s efforts at enforcing national unity
consequently become a source of intense strategic anxiety.
That anxiety became real when in the late 1950s and early 1960s the
Dutch and the USA (and some European powers) exploited the seas
inside the archipelago to support, at different times, separatism in West
Irian, Sumatra, and Sulawesi. Indeed, foreign submarines were used in
covert operations to conspire against Indonesia. Three Dutch submarines
(HNLM Ships Dolfijn, Zeeleeuw, and Walrus) saw action in West Irian
in 1962,29 as were American and British submarines that facilitated cov-
ert operations in Sumatra and Sulawesi in 1957–1958.30 The following
argument by Indonesian diplomat and maritime law expert, Hasjim

Djalal, on this period is particularly salient
Politically, Indonesia was concerned with its domestic national unity, polit-
ical stability, and national security. There are pockets of waters or the so-
called high-seas cutting between her islands. Indonesia watched helplessly
as submarines and other warships of foreign powers conducted manoeu-
vres only a short distance away from her coast in the waters on the sea
between the islands, often within eyesight from the coast. The fabric of
Indonesian national unity was at that time being challenged by various sep-
aratist and provincial movements largely based on “islands” sentimental-
ity as the result of the colonial policy in the past. Indonesia’s experiences
have indicated that whenever there was a domestic dissension, the dissenter
group was likely to receive clandestine support from the outside either by
air droppings or from foreign submarine and ships along the coast.31
The dilemma of being a maritime crossroads makes the problem of forg-

ing national unity amid a fragmented archipelagic geography even more
acute. Geography would not matter as much if Indonesia were located
where New Zealand or Iceland is. But the fact that Indonesia is located
along the main maritime routes between the Indian and Pacific Oceans
made the archipelago a busy thoroughfare for all kinds of international
shipping.32 On the one hand, this location serves as a geo-economics
blessing, for it has the potential for Indonesia to become a global mari-
time entrepôt—a vision that Indonesian President Joko Widodo’s
“Global Maritime Fulcrum” (Poros Maritim Dunia) concept seeks to
attain.33 On the other hand, a maritime crossroads also made the archi-
pelago easily penetrated by foreign maritime forces of different nation-
alities that may be hostile to one another, if not also to Indonesia itself.
Consequently, the straits and narrow seas within the archipelago could
become a fertile ground for maritime espionage, including by submarines.
The adoption of UN Convention Law of the Sea (UNCLOS) in 1982
and its enforcement in 1994 gave Indonesia the legal clarity and legiti-
macy to exercise more control of the seas within the archipelago, which
UNCLOS now terms as “archipelagic waters”.34 UNCLOS requires for-
eign submarines in the archipelagic waters to comply with the regime of
“innocent passage”, including to sail on the surface and hoist their flag.35
Predictably, not all maritime nations completely agree with this, espe-
cially the USA, who had shown contempt for Indonesia’s archipelagic
status as early as 1958.36 Indonesia’s insistence for foreign submarines to
exercise innocent passage faced a stiff resistance as a result. As a trade-off,

it designated three archipelagic sea lanes (ASL) running along the north–
south axis of the archipelago in 1996 which allowed foreign submarines
to transit under the “ASL passage” regime.37 In other words, foreign
submarines can transit the archipelagic waters via the ASL in “normal
mode” or thoroughly submerged provided they do so in a “continuous,
expeditious, and unobstructed” manner.38
Rather than assuaging the concerns of foreign maritime powers,
Indonesia’s ASL designation turned instead into a debate over how
the ASL should ideally look like. Foreign critics reasoned that the cur-
rent designation did not completely fulfil the UNCLOS provision for
the ASL to accommodate “all routes normally used for navigation”.
Accordingly, until and unless Indonesia fully accommodates all routes
normally used for navigation, the current ASL designation remains
incomplete or “partial” and renders its enforcement legally void.39 Calls
for more designation of ASLs came as a result, especially for the east–
west axis of the archipelago. Problems emerged, however, when the for-
eign maritime powers had different ideas of what such “normal” routes
actually look like and where they are located within the archipelago.40 By
the same token, accommodating all “versions” of normal routes would
defeat the very purpose of ASL designation itself. Too many ASLs would
further complicate Indonesia’s patrol and surveillance of international
maritime traffic where ideally it should be concentrated only along a few
navigational routes through the archipelago. Notwithstanding this disa-
greement, Indonesia after all considers the current ASL designation as
final.41 Apart from security considerations that discouraged Indonesia
from establishing more ASLs, the right of “innocent passage” for inter-
national navigation still applies in areas where the ASL is not yet desig-
nated, which renders additional ASLs unnecessary.42
While innocent passage does not significantly affect commercial navi-
gation, it could be problematic for military traffic. Since innocent pas-
sage requires submarines to sail on the surface, a submarine can expose
its activities and/or sensitive technology to other countries, whose
interests may be inimical to the country operating the submarine. In
other words, submarines generally prefer to operate in the manner for
which they are uniquely designed: by remaining submerged wherever
and whenever they can. The problem of “stray” submarines has thus
become a cause for concern as reported in Indonesia’s 2014 intelligence
assessments and the press.43 In peacetime, foreign submarines might
conduct activities and manoeuvres against other or opposing navies, if

not against Indonesia itself, within the archipelagic waters. For example,
they could gather the relevant bathymetric and oceanographic data for
future maritime warfare, loiter around to collect the acoustic and non-
acoustic signatures of other warships and submarines, or tap submarine
cables for espionage purposes—all possibly done without Indonesia’s
consent.44 This is probably why defence ministers Purnomo Yusgiantoro
and Ryamizard Ryacudu have all raised the importance of submarines
in monitoring Indonesian ASLs against the presence of foreign naval
forces.45
Considering Indonesia’s sensitivity to foreign submarine presence in
the archipelagic waters, and the desire to monitor foreign submarines
exercising the ASL passage, anti-submarine warfare (ASW) has become a
primary role for Indonesian submarines. While ASW ideally involves the
integration and contribution of naval aerospace and surface capabilities,
for a navy significantly bereft of such capabilities the submarine becomes
the only effective ASW platform.46 They can conduct intelligence gather-
ing on foreign warships and submarines passing through Indonesia’s key
choke points and ASLs. Efforts to integrate aerospace and surface forces
for ASW purposes are also improving, however. Since 2013, Indonesia
has been acquiring CN-235MPA maritime patrol aircraft (fitted for
sonobuoys and torpedoes) and eleven Panther ASW helicopters. The lat-
ter will be deployed onboard the Bung Tomo-class frigates and the future
SIGMA 10514-class guided missile corvettes—themselves are equipped
with hull-mounted sonars.47 In addition, the navy has commissioned two
new French-built vessels for oceanographic research purposes, KRI Rigel
and KRI Spica, equipped with autonomous underwater vehicles (AUV)
for underwater surveys and mapping.48 It remains a question nonetheless
whether Indonesia takes up ASW as a system of systems rather than just
as a mere collection of sonars and platforms. Indonesia remains handi-
capped by insufficient varieties of sonar systems at its disposal and most
importantly, the ability to produce the data collected into a clear and
integrated picture of the undersea environment.
Strategic Funnels
Entitled the “Archipelagic Sea Defence Strategy” (Strategi Pertahanan
Laut Nusantara, SPLN), the Indonesian naval strategy focuses attention
to the “strategic funnels” (corong strategis) as the maritime gateways into
the archipelagic waters, such as the north–south entrances to the ASLs,

the key choke points or straits and narrows located along Indonesia’s
archipelagic periphery.49 The role of submarines is pivotal in all of these
areas. Hasjim Djalal reiterates the predicament of archipelagic waters that
underlines the importance of strategic funnels:
Indonesia…due to its important and very strategic location, is extremely

conscious of the significance of the passage of foreign warships and sub-
marines through its archipelagic waters…For this reason, the Indonesian
government would like to have the knowledge about foreign warships and
submarines in its archipelagic waters.50
Resonating with the predicament above, the 2001 version of Indonesia’s

naval doctrine looks at SPLN from two dimensions: the outer and the
inner–outer.51 Briefly put, the “outer” dimension constitutes forward
defence to intercept any state-based maritime adversary 500 nautical
miles from Indonesia’s EEZ boundary. Meanwhile, the “inner-outer”
dimension constitutes the strategy to address foreign threats inside the
archipelagic waters. Strategic funnels are important in the SPLN since
they connect the outer with the inner dimension, which provides access
for foreign maritime forces, including submarines, into the archipelagic
waters. The SPLN is understood as a “defence-in-depth” consisting of
deterrence, layered defence, and sea control.52 Operationally, the layered
defence pillar of SPLN is subdivided into three zones: buffer (beyond
and within the EEZ), primary (between the EEZ and the territorial
sea), and resistance (the territorial sea, archipelagic waters, and coastal
areas).53
Deterrence and sea control are the peacetime roles of the navy.
Realistically, Indonesia has neither the capacity nor the rationale at
present for naval deterrence and sea control in the “outer” dimension
which basically requires sustained naval power projection.54 Instead, it
focuses more on the “inner-outer” dimension where the consequences
of Indonesia’s geographical context as both an archipelago and interna-
tional maritime crossroads overlap. In this dimension, the Indonesian
navy and air force seek sea control and anticipate potential threats from
foreign maritime forces accessing the archipelagic waters via the strate-
gic funnels, including foreign-supported separatism, border violations,
espionage, sabotage, and transnational crimes, including illegal fish-
ing and maritime piracy.55 A low-intensity but highly sensitive nature of
foreign-linked separatism, such as the 1992 Lusitania Expresso incident

and the 2013 West Papuan “freedom flotilla”, exemplified naval concerns
of the “inner-outer” dimension, as did rampant maritime poaching in the
archipelagic waters that resulted in a crackdown by the Jokowi govern-
ment.56
Submarines play a pivotal role in the buffer and primary zones of
SPLN concentrated along and near the choke points.57 In peacetime,
submarines can perform covert ISR operations of foreign maritime forces
near and along the strategic funnels. In wartime, the strategic funnels
are where submarines can concentrate their operations to hunt enemy
warships and/or lay mines. Alternatively, submarines can also mount
counter-blockade operations against the enemy fleet when the latter are
deployed near or along the strategic funnels to cut Indonesia’s access
from the “outer” dimension.
The submarine role in Indonesia’s naval strategy is by no means
unique. It bears a lot of semblance to “choke point control” as a form
of sea denial to “effectively block the exit or entry of hostile naval forces
or the transit of an enemy’s merchant ships”.58 The Straits of Malacca,
Sunda, Lombok, and Makassar, as well as Ombai and Wetar, constitute
some of these choke points.59 These straits may “constitute the most vul-
nerable sea communications” during wartime.60 Proximity to land also
allows the navy in choke point control to deploy inshore and coastal
naval forces (such as fast attack craft and coastal missile batteries) and
land-based maritime strike aircraft to counter the enemy ASW forces in
support of submarine operations.61 Indeed, the SPLN emphasises the
role of Indonesian air force to support naval operations across the three
zones of naval defence. A 2005 naval study even proposes a “maritime
defence strategy” that envisages a joint navy–air force approach for for-
ward defence beyond the EEZ.62 However, the air force might not have
wholeheartedly supported the plan for it saw air defence as its primary
role, as opposed to anti-surface warfare (ASuW) as the navy had pro-
posed.63
Naval concerns over the strategic funnels motivated the decision, if
partially, to construct two submarine bases additional to the one exist-
ing in Surabaya. These plans are somewhat aligned with the distribution
of Indonesia’s ASLs. The Palu submarine base in the western coast of
Central Sulawesi has been under construction since 2013.64 The deep
gulf marking the entrance to the base makes Palu one of the best natu-
ral harbours in Indonesia. Located about halfway between the Sulawesi
Sea in the north and the Flores Sea in the south, Palu would provide
Indonesian submarines a closer access than Surabaya to patrol the adja-
cent second ASL (“ALKI II”), which runs along the choke points of
Lombok–Makassar Straits axis, as well as the third ASL (“ALKI III”),
which partly encompasses other important straits, such as the Ombai and
Wetar (see Table 5.2). Indeed, in the Second World War the Japanese
regarded the Lombok Strait as a “submarine highway” and made it a
heavily patrolled area against Allied submarines.65 The Ombai and Wetar
Straits also provide the required depth and width for safe navigation of
nuclear submarines, which make them critical for US strategic deterrence
purposes.66
Announced in March 2016, the third base will be built in the Natuna
Besar Island, the largest of the Natuna Islands located in the South
China Sea. Recent standoffs between Chinese and Indonesian maritime
authorities due to purported overlaps of maritime claims near the Natuna
Islands, and the proximity to the China-occupied and militarised features
in the Spratly Islands, could make the Natuna Besar ideal for Indonesia
Table 5.2 Approximate sea distance and sail duration of Cakra-class from base
Base Destination Distance (nau- Submerged (21.5 Surfaced (11 knots)

tical miles) knots)
Hours Days Hours Days
Surabaya Lombok 216 10.0 0.4 19.6 1.8

Natuna 755 35.1 1.5 68.6 6.2
Tarakan 821 38.2 1.6 74.6 6.8
Ombai 772 35.9 1.5 70.2 6.4
Sabang 1324 61.6 2.6 120.4 10.9
Palu Lombok 533 24.8 1.0 48.5 4.4
Tarakan 274 12.7 0.5 24.9 2.3
Ombai 738 34.3 1.4 67.1 6.1
Surabaya 580 27.0 1.1 52.7 4.8
Natuna Sabang 888 41.3 1.7 80.7 7.3
Surabaya 755 35.1 1.5 68.6 6.2
Sepanggar Bay 502 23.3 1.0 45.6 4.1
Sanya 1047 48.7 2.0 95.2 8.7
(Hainan)
Nha Trang 533 24.8 1.0 48.5 4.4
Source Platts McGraw Hill Financial (http://www.portworld.com/map); Nuclear Threat Initiative

((http://www.nti.org/media/pdfs/type209_1300_cakra_class.pdf?_=1367349086))
to protect its South China Sea frontier.67 Located on the northern

entrance of the first ASL (“ALKI I”), which runs along the Sunda and
Karimata Straits and the Natuna Sea axis, the Natuna base also offers
the submarines a better proximity to conduct ISR operations on foreign
maritime forces navigating between the Indian and Pacific Oceans via the
Malacca Strait—South China Sea route (see Table 5.2).
Challenges and Implications to Regional Stability

Although the imperatives to maintain submarines are present, Indonesia
found their operations quite challenging. They pose technical challenges
and strategic implications to regional stability. The operational chal-
lenges of submarines reside not just in the acquisition process, but also in
its maintenance, service, and logistics. Sam Bateman and Jan Andersson
describe such challenges limit the deterrent value of a submarine.
Bateman cautions that as more regional countries are operating subma-
rines, they become more exposed to the risks of submarine operations,
the maintenance of high levels of skills and experience in submarine crews,
and the need for effective command and control systems for submarine
operations.68 In short, submarine operations are “inherently dangerous”
since “even a relative minor accident onboard” can have “catastrophic
consequences”.69 Andersson echoes Bateman in which “deploying a
submarine force effectively and safely is extremely challenging, since it
requires not only boats in the water, but also the technical skills necessary
to service and maintain them as well as enough trained crew to operate
them”, especially when regional navies also concurrently developing their
submarine-hunting capabilities.70 As a result, these submarines are less
likely to achieve “the objectives of deterrence and potential ‘access denial’
that submarine operators in Southeast Asia are seeking to achieve”.71
Indonesian submarines are not immune to these operational chal-
lenges. For example, since they were not tropicalised, the internal tem-
perature of the Whiskey submarines increased from 20 °C in Russian
waters to 52° in the tropics, which undermined the operational per-
formance and morale of the crew, not to mention battery problems
which “drastically limited their submerged endurance”.72 As a result,
the operational efficiency of Indonesian Whiskey boats “was not high”
and they “were often sighted on the surface during ‘war patrols’ and
no mine-laying exercises were carried out”.73 Out of the twelve sub-
marines, only four boats were operational at any one time. The same
operational challenges confronted the U-209 boats when INTERFET

forces reported of seeing them operating on the surface which made
them “rather quickly detected”.74 Finally, notwithstanding PT-PAL’s
recent progress in naval surface shipbuilding, constructing, and main-
taining a submarine is a different challenge altogether.75 Even with PT
PAL’s engineers involved in the construction of the first and second
Nagabanda-class submarines at DSME shipyard, Indonesia may still face
a major technological challenge in building the third and servicing them
back home. At least this was the reason why DSME was initially “reluc-
tant” to involve PT PAL engineers to take a “hands-on” approach in
submarine construction at the former shipyard.76
At the strategic level, the challenges of submarine operations concern
their role in covert ISR operations. The proliferation of Southeast Asian
submarines alongside those of the major powers can render regional
waters more contested and congested.77 They can pose challenges to
regional stability where the threat of submarine accidents will increase.
Bateman warns that “the detection of a submarine in disputed waters,
unless carefully managed, could readily lead to a serious deterioration in
relations between the parties involved, increased tensions in the region,
and even conflict”.78 Whereas most attention is seemingly paid to the
risks of conventional submarine operations, Indonesian geographical
context renders it possible for conventional submarines to share the same
operational environment with nuclear submarines of the major maritime
powers, such as the USA, Russia, France, and potentially, China and
India.
Nuclear submarines occasionally transit the Indonesian archipelagic
waters and ASL for strategic deterrent and strategic ASW purposes.79
For example, nuclear attack submarines (SSN) can identify, track, and
trail the SSN or ballistic missile submarine (SSBN) activities of oth-
ers navies while exercising ASL passage. Consequently, the submarines
involved might conduct dangerous manoeuvres intended to keep or lose
track of one another, which could precipitate incidents at sea, if not also
trigger conflict inadvertently. Such examples of brinkmanship occurred
numerously during the Cold War with some resulted in accidents and
remained as tightly guarded secrets until today.80 Undersea posturing, if
not collisions, between different operators of nuclear submarines, such as
between those of Chinese and the USA or India, in Indonesian archipe-
lagic waters are not impossible a scenario.81 Unlike conventional subma-
rines, nuclear submarines carry a higher safety risk due to the potential
of radioactive contamination. A fatal nuclear submarine accident in the

ASL or archipelagic waters would almost certainly impose ecological,
diplomatic, and security costs on Indonesia that it might not be able to
afford.82
Considering the risks above, efforts to build confidence among
submarine operators and improve submarine operational safety have
become one of Indonesia’s agendas in regional maritime security coop-
eration. Exercise Orion with Australia in March 1975 saw the first
participation of an Indonesian submarine, KRI Pasopati, in bilateral
submarine exercises since Operation Gugus Tugas X. In July 2012,
Indonesia also signed a submarine rescue arrangement with Singapore.
Marking Indonesia’s first-ever bilateral submarine rescue cooperation,
the arrangement “symbolises increased trust [between Indonesia and
Singapore] in the traditionally sensitive undersea domain”.83 In August
the same year, KRI Nanggala conducted a passage exercise with USS
Oklahoma City in the Java Sea.84 Signalling improved ties between
the two navies, in April 2015 the Indonesian submarine force and US
Submarine Group 7 held a table top Simulated Submarine Casualty
Exercise (SMASHEX), as well as staff talks to establish routine periodic
engagements and operations that will include training opportunities to
integrate Indonesian and US submarine force capabilities.85
Despite the enthusiasm for bilateral submarine exercises, Indonesian
submarines are noticeably absent from multilateral exercises. For exam-
ple, Indonesian submarines have never participated in the biennial
Exercise Pacific Reach series to “develop regional submarine escape and
rescue (SMER) capabilities and strengthen interoperability in submarine
rescue operations among participating navies”.86 Rather, Indonesia only
sent naval observers since the exercise’s inception in 2000, despite the
fact that Pacific Reach is the only multilateral submarine exercise in the
Asia-Pacific. Andersson speculates that it might owe to a lack of boats and
inexperienced crews,87 perhaps in addition to financial and technical con-
straints in deploying submarines out of the country. The same constraints
might also set the limits to Indonesia’s current submarine ambitions.
Conclusion
Historical experience, geographical context, and strategic funnels con-
stitute the three imperatives that make submarines remain relevant in
Indonesia’s naval strategy. Historical experience suggests that since
submarines were proven important in past contingencies, Indonesia

must continue operating them at present and in the future. Geographical
context underlines the importance of submarines in supporting national
unity amid a fragmented archipelagic geography and in resolving the
dilemma of a maritime crossroads. Finally, naval concerns over the stra-
tegic funnels explain Indonesia’s rationale to have submarines conduct
ISR operations on foreign warships in peacetime and apply choke-point
control in wartime.
These imperatives, however, do not imply that Indonesian submarines
are immune to the operational and strategic challenges common to other
submarine operators. Operationally, challenges in the fields of mainte-
nance, service, and logistics, as well as experience and training of crew
continue to stymie the deterrent value of submarines from reaching its
full potential. Strategically, submarine operations are inherently sensi-
tive and in some cases, provocative, which if not carefully managed, can
escalate tensions and provoke inadvertent conflicts. Indonesia can try to
mitigate these challenges by involving the submarine in cooperative naval
diplomacy, such as submarine rescue and multilateral exercises. Not only
would these activities enrich the experience of Indonesian submariners
and familiarise them with submariners from other countries, they could
also gradually mitigate the usual suspicions associated with submarine
operations.
Notes
1. Juwono Sudarsono, “Sambutan Menteri Pertahanan dalam Penerbitan
Buku’50 Tahun Pengabdian Hiu Kencana” [Preface by the Defence
Minister on the Publication of the “50 Years’ Service of Hiu Kencana”],
in Wahyono S. K., ed., 50 Tahun Pengabdian Hiu Kencana 1959–2009
(Jakarta: Panitia Penerbitan Buku 50 Tahun Pengabdian HIU KENCANA,
2009), viii.
2. Ridzwan Rahmat, “DSME launches first Indonesian SSK”, Jane’s Navy
International, 24 March 2016.
3. Ridzwan Rahmat, “Indonesian Navy plans for submarine base in South
China Sea”, Jane’s Navy International, 31 March 2016.
4. Mrityunjoy Mazumdar, “Underwater aspirations break the surface in SE
Asia”, Jane’s Navy International, 7 October 2011.
5. Indroyono Susilo and Budiman, Kapal Selam Indonesia [Indonesian
Submarines] (Bogor: Penerbit Buku Ilmiah Populer, 2008), 70.
6. James Goldrick and Jack McCaffrie, Navies of South-East Asia (Abingdon,

Oxon: Routledge, 2014), 64–66.
7. Agung Pramono, “The History of the Indonesian Submarine Squadron”,
Undersea Warfare, Issue No. 5 (2013), http://www.public.navy.
mil/subfor/underseawarfaremagazine/Issues/Archives/issue_50/
IndonesianSubSquadron.html.
8. Alexey Muraviev and Colin Brown, “Strategic Realignment or Déjà vu?
Russia-Indonesia Defence Cooperation in the Twenty-First Century”,
SDSC Working Paper No. 411 (Canberra: Strategic and Defence Studies
Centre, 2008), 25.
9. NAA A1946 1969/866, Indonesian Military Capability—Including Long
Range Forecasting, “JIC (AUST)(69)42: Form and Scale of Attack by
Indonesia on Australia”, February 1969.
10. They had the same name as the first two Whiskeys but with new
Indonesian spelling and pennant numbers.
11. Jack McCaffrie, “Submarines for South-east Asia: A major step?” in
Geoffrey Till and Jane Chan, ed., Naval Modernisation in South-East Asia:
Nature, causes and consequences (Abingdon, Oxon: Routledge, 2014), 33.
12. Indonesia’s Ministry of Defence, Minimum Essential Force Komponen
Utama (Jakarta: Kementerian Pertahanan Republik Indonesia, 2010),
68–69.
13. “Indonesian navy’s decision to buy Russian-made submarines raises sus-
picion”, Tempo, 31 January 2006; RI navy to procure submarines in
stages”, Antara, 12 October 2006.
14. “Indonesia set to buy Russian submarines—news agency”, RIA Novosti,
19 October 2006.
15. Jon Grevatt, “Indonesia edges closer to decision on Kilo-class sub-
marines”, Jane’s Navy International, 9 December 2013; Gabriel
Dominguez, “Indonesia considering purchase of Russian Kilo-class sub-
marines, says ambassador”, Jane’s Defence Weekly, 1 June 2016.
16. Ristian Atriandi Supriyanto, “Indonesia’s New Submarine Bids: An under-
sea Buildup?” RSIS Commentary, No. 159/2011, 4 November 2011.
https://www.rsis.edu.sg/wp-content/uploads/2014/07/CO11159.
pdf.
17. A. Malik Ibrahim, “PT PAL Indonesia to launch submarine infra-
structure”, Antara, 7 April 2016, http://www.antaranews.com/en/
news/104069/pt-pal-indonesia-to-launch-submarine-infrastructure.
18. Ridzwan Rahmat, “Indonesia receives bids from DCNS, DSME for subma-
rine overhaul contract”, Jane’s Navy International, 26 November 2015.
19. Indonesian Navy Headquarters, Sejarah TNI Angkatan Laut 1959–1965
[The History of the Indonesian Navy, 1959–1965] (Jakarta: Dinas
Penerangan TNI Angkatan Laut, 2001), 172.
20. Goldrick and McCaffrie, Navies, 71; Toh Boon Kwan, “Brinkmanship and
Deterrence Success during the Anglo-Indonesian Sunda Straits Crisis,
1964–1966”, Journal of Southeast Asian Studies, 36:3 (2005): 410.
21. Kwan, “Brinkmanship”, 410–411.
22. David Dickens, “The United Nations in East Timor: Intervention at the
Military Operational Level”, Contemporary Southeast Asia, 23:2 (2001):
223.
23. Indonesian Navy Headquarters, Sejarah, 173.
24. Wies Platje, “Dutch Sigint and the Conflict with Indonesia, 1950–62”,
Intelligence and National Security, 16:1 (2001): 305.
25. Goldrick and McCaffrie, Navies, 71.
26. Soentoro, “Pengalaman Bertugas di Kapal Selam” [The Experience
Serving on Submarines] in Wahyono, 50 Tahun, 158–174.
27. Hasjim Djalal, Indonesia and the Law of the Sea (Jakarta: Centre for
Strategic and International Studies, 1995), 294.
28. Dino Patti Djalal, The Geopolitics of Indonesia’s Maritime Territorial Policy
(Jakarta: Centre for Strategic and International Studies, 1996), 63–69.
29. Julious Pour, Laksamana Sudomo: Mengatasi Gelombang Kehidupan
[Admiral Sudomo: Overcoming the Swells of Life] (Jakarta: Gramedia
Widiasarana, 1997), 143; “Walrus”, Dutch Submarines, http://www.
dutchsubmarines.com/boats/boat_walrus1.htm.
30. Audrey Kahin and George Kahin, Subversion as Foreign Policy: The Secret
Eisenhower and Dulles Debacle in Indonesia (Seattle: University of
Washington Press, 1997), 121.
31. Djalal, Indonesia, 337.
32. Marsetio, Sea Power Indonesia (Jakarta: Universitas Pertahanan, 2014),
91.
33. Ristian Atriandi Supriyanto, “Developing Indonesia’s Maritime Strategy
under President Jokowi”, The Asan Forum, 4:1 (2016). http://www.
theasanforum.org/developing-indonesias-maritime-strategy-under-presi-
dent-jokowi-1/.
34. UNCLOS article 49; Donald Rothwell, “The Indonesian Straits incident:
Transit or archipelagic sea lanes passage?” Marine Policy, 14:6 (1990):
501.
35. Sam Bateman, “Perils of the Deep: The Dangers of Submarine
Proliferation in the Seas of East Asia”, Asian Security, 7:1 (2011): 72–73.
36. Kwan, “Deterrence”, 402.
37. Leonard Sebastian, Ristian Atriandi Supriyanto, and I. Made Andi Arsana,
“Beyond the Archipelagic Outlook: The Law of the Sea, Maritime
Security and the Great Powers”, in Christopher Roberts, Ahmad Habir,
and Leonard Sebastian, ed., Indonesia’s Ascent: Power, Leadership, and the
Regional Order (New York: Palgrave Macmillan, 2015), 313.
38. Bateman, “Perils”, 72; UNCLOS article 53(3).

39. Chris Forward, “Archipelagic Sea-Lanes in Indonesia—Their legality in
International Law”, Australian and New Zealand Maritime Law Journal,
23 (2009): 143.
40. Kresno Buntoro, Alur Laut Kepulauan Indonesia (ALKI): Prospek dan
Kendala [Indonesian Archipelagic Sea Lanes (ALKI): Prospect and
Challenges] (Jakarta: Seskoal, 2012), 176–181.
41. Marsetio, Sea Power, 57.
42. Sebastian, Supriyanto, and Arsana, “Beyond the Archipelagic Outlook”,
315–318.
43. Muhammad Hikam, ed., Menyongsong 2014–2019: Memperkuat Indonesia
Dalam Dunia Yang Berubah [Braciing for 2014–2019: Strengthening
Indonesian in a Changing World] (Jakarta: Badan Intelijen Negara,
2014), 392; Sucipto, “TNI AL Halau Kapal Selam Amerika Masuk
Perairan Indonesia” [The Indonesian navy prevented American sub-
marine from entering Indonesian waters], Sindonews, 4 February 2016,
http://nasional.sindonews.com/read/1082875/14/tni-al-halau-
kapal-selam-amerika-masuk-perairan-indonesia-1454595515; Anggi
Kusumadewi, “Kapal Selam Asing Masuk RI: Alasan TNI Hidupkan
Skuadron 100” [Foreign submarine entering RI: The reason navy res-
urrected Squadron 100], CNN Indonesia, 25 June 2015, http://www.
cnnindonesia.com/nasional/20150625113259-20-62283/kapal-selam-
asing-masuk-ri-alasan-tni-hidupkan-skuadron-100/.
44. Bateman, “Perils”, 64.
45. Interview with Purnomo Yusgiantoro, Jakarta, 16 January 2014, cited in
Amitav Acharya, Indonesia Matters: Asia’s Emerging Democratic Power
(Singapore: World Scientific, 2015), 91; Diemas Kresna and Abraham
Utama, “Menhan Ingin Siagakan Kapal Selam di Alur Laut Indonesia”
[Defence Minister wants to station submarines in Indonesian sea lanes],
CNN Indonesia, 7 April 2016, http://www.cnnindonesia.com/nasio
nal/20160407181428-20-122450/menhan-ingin-siagakan-kapal-selam-
di-alur-laut-indonesia.
46. Karl Lautenschlager, “The Submarine in Naval Warfare, 1901–2001”,
International Security, 11:3 (1986–1987): 109.
47. Ridzwan Rahmat, “Indonesia to re-establish dedicated ASW squadron”,
Jane’s Navy International, 19 June 2015.
48. Ridzwan Rahmat, “Indonesia inducts French-built OSV into military seal-
ift command”, Jane’s Navy International, 23 December 2015.
49. Indonesian Navy Headquarters, Gagasan Tentang Strategi Pertahanan
Maritim Indonesia (SPMI) Sebagai Strategi Pertahanan Negara
Kepulauan [A Proposal on Maritime Defence Strategy as a Capstone
Defence Strategy of an Archipelagic State] (Jakarta: Mabes TNI-AL,
2005), 3; Bernard Kent Sondakh, “Strategi Peperangan Laut

Kepulauan” [Archipelagic Naval Warfare Strategy], 12–13. Paper pre-
sented to “Satria” defence magazine in February 2005; Indonesian
Navy Headquarters, Doktrin TNI-AL Eka Sasana Jaya (Jakarta: Mabes
TNI-AL, 2001), 19; Ristian Atriandi Supriyanto, “Strategic Funnels’:
Deciphering Indonesia’s Submarine Ambitions”, RSIS Commentary,
No. 263, 3 December 2015, https://www.rsis.edu.sg/wp-content/
uploads/2015/12/CO15263.pdf.
50. Djalal, Indonesia, 316.
51. Indonesian Navy Headquarters, Doktrin, 57–58.
52. Indonesian Navy Headquarters, Strategi Pertahanan Laut Nusantara
(Jakarta: Markas Besar TNI-AL, 2003), 13.
53. Evan Laksmana, “Rebalancing Indonesia’s naval force: Trends, nature,
and drivers”, in Till and Chan, Naval, 188–189.
54. Benjamin Schreer, Moving beyond ambitions? Indonesia’s military moderni-
sation (Canberra: Australian Strategic Policy Institute, 2013), 22.
55. Indonesian Navy Headquarters, Doktrin TNI-AL Eka Sasana Jaya
(Jakarta: Mabes TNI-AL, 2006), 20.
56. Donald Rothwell, “Coastal state sovereignty and innocent passage: The
voyage of the Lusitania Expresso”, Marine Policy, 16:6 (1992): 428–429;
Marni Cordell, “Indonesia warns it may use force against West Papuan
Freedom Flotilla”, The Guardian, 20 August 2013, http://www.theguard-
ian.com/world/2013/aug/20/indonesia-west-papua-flotilla-force; Aaron
Connelly, “Sovereignty and the Sea: President Joko Widodo’s Foreign
Policy Challenges”, Contemporary Southeast Asia, 37:1 (2015): 18.
57. Sondakh, “Strategi”, 12–13.
58. Milan Vego, Operational Warfare at Sea: Theory and practice (Abingdon,
Oxon: Routledge, 2009), 36; Marsetio, Sea Power, 67.
59. John Noer with David Gregory, Chokepoints: Maritime Economic Concerns
in Southeast Asia (Washington, DC: National Defense University Press,
1996), 1–2.
60. Milan Vego, Naval Strategy and Operations in Narrow Seas, 2nd ed.
(London: Frank Cass, 2003), 121.
61. Veego, Naval Strategy, 122.
62. Indonesian Navy Headquarters, Gagasan, 5.
63. Discussion with Indonesian air force officers, Jakarta, 3 November 2014.
64. Ruslan Sangadji, “Submarine base to accommodate Russian, South
Korean vessels”, The Jakarta Post, 3 February 2016, http://www.theja-
kartapost.com/news/2016/02/03/submarine-base-accommodate-rus-
sian-south-korean-vessels.html.
65. Edward Beach, Around the World Submerged: The Voyage of the Triton
(Annapolis: Naval Institute Press, 1962), 228.
66. Robert Osgood, “U.S. Security Interests in Ocean Law”, Survival, 17:3

(1975), 122; Peter Polomka, Ocean Politics in Southeast Asia (Singapore:
Institute of Southeast Asian Studies, 1978), 36.
67. Ristian Atriandi Supriyanto, “Breaking the Silence: Indonesia vs. China
in the Natuna Islands”, The Diplomat, 23 March 2016, http://thedip-
lomat.com/2016/03/breaking-the-silence-indonesia-vs-china-in-the-
natuna-islands/.
69. Ibid., 63.
70. Jan Joel Andersson, “Submarine Capabilities and Conventional
Deterrence in Southeast Asia”, Contemporary Security Policy, 36:3
(2015): 478.
71. Ibid., 490.
72. Goldrick and McCaffrie, Navies, 66; R. P. Poernomo, “Sekilas Kenangan
dari Sesepuh Kapal Selam RI” [A Memory from a Senior Indonesian
Submariner] in Wahyono, 50 Tahun, 13.
73. Chris Tuck, “The Royal Navy and Confrontation, 1963–66”, in Greg
Kennedy, ed., British Naval Strategy East of Suez 1900–2000 (London:
Frank Cass, 2005), 204.
74. Andersson, “Submarine”, 486.
75. Andersson, “Submarine”, 486–487; Felicity Norman, Indonesian Naval
Modernisation: Why did Indonesia increase naval modernisation efforts
between 2004 and 2014? Master Sub-thesis, Australian University, 30
October 2014, 38.
76. Indra Wijaya, “Ini Alasan Korea Batasi RI Belajar Kapal Selam” [This is
the reason why Korea limits RI in studying submarines], Tempo, 26 June
2013. https://m.tempo.co/read/news/2013/06/26/078491478/ini-
alasan-korea-batasi-ri-belajar-kapal-selam.
77. Jack McCaffrie, “Submarines”, 42–43.
79. Michael Leifer, International Straits of the World: Malacca, Singapore, and
Indonesia (The Netherlands: Sijthoff & Noordhoff, 1978), 161–163.
80. See, Sherry Sontag et al., Blind Man’s Bluff: The Untold Story of American
Submarine Espionage (New York: HarperPaperbacks, 1998).
81. Brendan Thomas-Noone and Rory Medcalf, Nuclear-armed submarines
in Indo-Pacific Asia: Stabiliser or menace? (Sydney: Lowy Institute for
International Policy, 2015), 11.
82. Ristian Atriandi Supriyanto, “The US Rebalancing to Asia: Indonesia’s
Maritime Dilemma”, PacNet, no. 30A, May 2, 2013, http://csis.org/
files/publication/Pac1330A.pdf.
83. Koh Swee Lean Collin, “Indonesia-Singapore Submarine Rescue Pact:
Promoting Southeast Asian Naval Cooperation”, RSIS Commentaries,
No. 134/2012, 24 July 2012, https://www.rsis.edu.sg/wp-content/

uploads/2014/07/CO12134.pdf.
84. Ade Marboen, “KRI Nanggala-402 dan USS Oklahoma City latihan ber-
sama di Laut Jawa” [KRI Nanggala-402 and USS Oklahoma City exercise
together in Java Sea], Antara, 30 August 2012, http://www.antaranews.
com/berita/330367/kri-nanggala-402-dan-uss-oklahoma-city-latihan-
bersama-di-laut-jawa.
85. Brian Reynolds, “Submarine Group 7 Strengthen Ties with the Indonesian
Submarine Force”, Navy.mil, 20 April 2015, http://www.navy.mil/submit/
display.asp?story_id=86645.
86. Singapore’s Ministry of Defence, “Singapore Hosts Regional Submarine
Rescue Exercise”, 18 August 2010, http://www.mindef.gov.sg/imin-
def/press_room/official_releases/nr/2010/aug/18aug10_nr2.html#.
VxZmChN97Eo.
87. Andersson, “Submarine”, 486.
Author Biography
Ristian Atriandi Supriyanto Indonesian Presidential Ph.D. Scholar with the
Strategic and Defence Studies Centre at the Australian National University. He is
also a former Associate Research Fellow with the Maritime Security Programme
at the S. Rajaratnam School of International Studies at Nanyang Technological
University, Singapore.
CHAPTER 6
Submarine Acquisition in Singapore
Abstract  The reasons for submarine acquisition in Singapore are

explored against the general strategic context in Southeast Asia, and the
country’s unique approach to the challenges it identifies is demonstrated.
The contribution that submarines are thought to make to Singapore’s
security is discussed, and the technological, economic and demographic
problems and their acquisition poses are identified.
Keywords  Naval modernisation · Submarines · Singapore

Stability in Southeast Asia
Introduction
A submarine is an inherently offensive weapon system that combines
stealth, mobility and firepower, enabling it to conduct various peace and
wartime missions. Prior to the advent of nuclear propulsion, the diesel-
electric powered submarine (SSK) has already proven its worth in com-
bat. There are many recent examples. A Dutch SSK supported anti-piracy
C. Koh Swee Lean (*) 

Institute of Defence and Strategic Studies, S. Rajaratnam School
of International Studies (RSIS), Blk S4 Nanyang Avenue,
Singapore 639798, Singapore

84 C. KOH SWEE LEAN
operations off the Horn of Africa under NATO’s Operation Ocean Shield
in 2010.1 More recently in November 2015, the Russian SSK Rostov-On-
Don launched long-range cruise missile strikes at Islamic State targets in
Syria—a task that has traditionally been conducted by nuclear-powered
boats. These examples demonstrate the continued value of the SSK.
Small navies certainly cannot hope to acquire nuclear-powered under-
sea capabilities given the cost, technical complexity and vast infrastructure
involved. The modern SSK—equipped with advanced combat systems,
better quieting features and performance-enhancing “add-ons” such as air
independent propulsion (AIP)—is therefore a “strategic asset” of signifi-
cance for lower-tier navies. Despite the finances and technical complexity
involved, the investment is, at least in theory, well worth it: the SSK pro-
vides the weak navy with an asymmetric means of deterrence which helps
complicate the stronger naval adversary’s planning. A well-equipped SSK
manned by a well-trained crew capable of taking advantage of familiar-
ity with the local operating environment can still attain disproportionately
significant strategic effects. In other words, the SSK can be a credible
force multiplier for small navies. Thus, it is no wonder that a small navy
such as Singapore’s is keen on maintaining a submarine capability.
The Singapore case is interestingly unique since it is a small country
without the vast maritime zones of its neighbours and yet maintains a
submarine force that is larger and arguably more capable than theirs.
Accordingly, Singapore’s submarine policy shows how it views national
security. The SSK offers a way out of Singapore’s geostrategic and geo-
political conundrum, by essentially serving as a force multiplier for its
overall ability to defend its national interests effectively.
Why Submarines for the “Little Red Dot”?

Singapore is a “Little Red Dot”—a physically tiny city state that is reli-
ant on uninterrupted access to sea lines of communications (SLOCs) for
national survival and prosperity, yet at the same time without appreci-
able geostrategic depth and surrounded by larger neighbours with whom
Singapore has its fair share of acrimonious relations in the past.
Particularly since the end of the Cold War, the Republic of Singapore
Navy (RSN) has played a pivotal role in Singapore’s defence because of
the many maritime traditional and non-traditional security concerns it
faces such as territorial and sovereignty disputes in the South China Sea
(SCS),2 maritime terrorism, as well as piracy and armed robbery against
6 SUBMARINE ACQUISITION IN SINGAPORE 85
ships. Like any navy worldwide, the RSN is also a flexible foreign policy
instrument not only playing a primary role in the country’s immedi-
ate geographic area, but also contributing a secondary role to “out-of-
area” international security, for instance counter-piracy operations in the
Gulf of Aden.3 Thus, the RSN illustrates the two fundamental pillars of
Singapore’s defence: deterrence and diplomacy. As such, it has to maintain
a balanced set of capabilities to cover a spectrum of peacetime constabu-
lary (or, Operations Other Than War, OOTW) and wartime missions.
Nonetheless, it is going to remain a small navy due to financial and
manpower constraints. The latter factor is a particular key consideration,
given Singapore’s declining birth rates. The RSN therefore has to tran-
scend these limitations in order to maximise its effectiveness. One way is
to leverage on military hi-tech to compensate for manpower difficulties.
A “lean and mean” RSN submarine force could then be a very useful
force multiplier for peacetime deterrence and in times of war, for extend-
ing Singapore’s seaward defence, complicating the adversary’s plans
and interdicting its forces in the likely sea approaches in the Straits of
Malacca and Singapore as well as the SCS.4
Singapore’s policymakers also sometimes claim that a strong navy
contributes to regional security.5 This is in the context of the spate of
naval armament taking place in the broader Indo-Pacific region in which
submarine proliferation has become a key element as regional countries
become wealthier and likewise see the advantages of an undersea “force
multiplier” capability.
However, taking no chances while exploiting its relatively stable
economic health, Singapore continues to try to leapfrog its potential
competitors in military technology. To this end, in December 2013,
Singapore purchased a pair of new German-built SSKs, dubbed Type-
218SG, the first of which is slated to enter service before 2020. This pair
will allow the eventual phasing out of the ageing Challenger (Swedish
A12 Sjöormen) and augment the newer pair of Archer (Swedish A17
Västergotland) boats.
The question nonetheless arises: Are submarines merely prestige items
for Singapore? On the one hand, they have considerable utility for the
RSN’s littoral environment. The South China Sea, for example, is a
“submarine haven” with its deep patches, varied saline conditions, rug-
ged underwater terrain and rich marine biodiversity that altogether com-
plicate and frustrate enemy anti-submarine efforts. Submarines clearly
serve immediate practical defence and security needs for Singapore.
86 C. KOH SWEE LEAN
Table 6.1 RSN’s phased approach to building submarine capability
Phase Initiatives undertaken
One Feasibility studies conducted in the 1980s–early 1990s

Two Purchase of second-hand Swedish A12 boats for training and familiarisation
purposesa
Three Purchase of bigger, technologically more complex second-hand A17 boats to
operationalise the submarine capability
Four Establish a more comprehensive submarine capability infrastructure, including
emergency response and onshore training capacities
Five Purchase of bigger new-build Type-218SG boats with enhanced ocean-going
capability
Source By author drawing on various official and news reports

aThe RSN made the initial purchase of the first A12 boat in 1995 as part of a comprehensive submarine train-
ing programme to train about 40 personnel. This was then followed by the purchase of three additional A12
boats in 1997 and the signing of a landmark submarine training agreement with Sweden in February 1998.
On the other hand, prestige also generates its own deterrent effect.6
For this, simply having submarines is not enough: Singapore must show
it can sustain, operate and maintain them too. The RSN’s undersea capa-
bility development is deliberately planned and implemented, as shown in
Table 6.1.
Singapore’s interest in acquiring an undersea capability stretches back
to the 1980s, when it began a feasibility study, including a visit by a RSN
delegation to Sweden.7 However, with funding constraints submarines
had less priority than building surface forces, particularly new missile
corvettes to provide an ASW capability for the first time.
It was not until the early 1990s that fiscal circumstances facilitated con-
crete moves into submarine acquisition. To this end, virtually the entire
fleet of A12 boats retired by the Swedes was acquired. The rationale was
based on prudence. Firstly, the RSN was a newcomer into the undersea
arena, and these second-hand SSKs provided a suitable platform for train-
ing and assimilation purposes. Secondly, acquiring second-hand instead of
new-build submarines minimised the risks involved in first building such
a capability. The A12 boats were much less expensive as a cost-effective
“starter platform,” for training and actual operations8 especially as they
had been well maintained by the Swedes and remained in good condition.
The A12 boats, christened the Challenger class, helped build the core
of the RSN’s submariners and institutional expertise and know-how. This
“seed capability” came at a time when many Southeast Asian navies were
also engaged in modernisation, but the RSN was able to forge ahead
despite the Asian Financial Crisis in 1997–1998 thanks to consistent

defence funding which allowed the RSN not only to leapfrog its neigh-
bours, but also to consider a more capable follow-on submarine.
In 2005, just as the region was gradually recovering from the financial
crisis and reviving its naval programmes, Singapore decided to procure
Swedish A17 boats. In no small part, this was attributed to the good
Singapore–Sweden defence relations previously developed and the navy’s
familiarity with Swedish submarine technology which had developed by
this time.
The A17 was another prudent second-hand purchase. At least a dec-
ade younger than the preceding A12, the A17 had similar hydrodynamic
characteristics (the standard teardrop, albacore hull with the distinctly
Swedish X-configuration rudders) but was equipped with more capable
combat systems. The boats were well maintained and still had significant
amount of service life in them. But this time, the RSN was bolder—the
A17 was cut into halves and had an additional section inserted amidships.
This additional module was to house the Stirling AIP—a Swedish
innovation. It extended underwater endurance from days to at least two
weeks before requiring snorkelling to recharge the batteries. But this
modification is not unique to Singapore’s boats; the Swedes performed
similar work on the A17 boats they retained in service, designating it the
Södermanland class.9 Singapore could well have “piggy-backed” on the
Swedes’ modification programme.
Even with this modification, these two boats, designated the Archer
class in RSN service, were probably cheaper than new-builds while still
offering the RSN an operational edge; thus far, it remains the only navy
in Southeast Asia operating AIP-equipped submarines. The Archers’
commissioning allowed the gradual retirement of some Challenger SSKs.
However, the RSN was already mulling more new boats to completely
retire the Challengers. It would also enable the maintenance of a working
fleet of more than just two Archers, providing at least one boat on patrol
at any time.
More recently the RSN, besides consolidating the newly established
171 Submarine Squadron (an independent unit that is directly subordi-
nate to the Navy Headquarters), has constructed an elaborate support-
ing infrastructure for its undersea fleet at Changi Naval Base, including
a covered shelter (or “submarine pen”)10 and submarine training centre
replete with a German-designed simulator.11
88 C. KOH SWEE LEAN
Accepting the expense of the submarine rescue vessel Swift Rescue,

equipped with special facilities (e.g. decompression chambers), and most
notably the DSAR-5 deep-submergence rescue vehicle, as a further part
of an incremental supporting infrastructure, training and emergency
response capacities, shows clear evidences that the RSN is determined to
establish a functional undersea capability for deterrence and defence, and
is not simply interested in considerations of prestige.
The RSN possesses arguably the most advanced and comprehensive
suite of undersea capabilities in Southeast Asia although its neighbours
are likewise making progress in infrastructure support and/or submarine
rescue. The RSN is further consolidating this suite of capabilities while
purchasing new German-built Type-218SG boats as part of the blueprint
for the future Singapore Armed Forces (SAF) by 2030.12 Little informa-
tion on this hitherto-unheard-of class has so far emerged beyond official
press releases.13 Based on available information, including photographic
evidences, the Type-218SG is not a bottom-up design-from-scratch sub-
marine but somewhere in between the Type-214—a 1400-ton export
variant of the Type-212/212A that serves both the German and Italian
navies—and the enlarged Type-216 which is optimised as a 3000-ton
plus, long-range ocean-going submarine and currently being offered to
the Australians.14
As such, the Type-218SG would represent another milestone for
Singapore’s submarine quest, implying the navy’s development of the
expertise to step up to operate larger, more capable boats which will be
equipped with German fuel-cell AIP and possibly unmanned underwa-
ter vehicles (UUVs). It still reflects operational and fiscal prudence on
the part of the RSN in proceeding purposefully yet cautiously with this
capacity-building process, through the acquisition of second-hand boats
before finally settling on new-builds.
By 2020, it is envisaged that the RSN would progressively retire all
Challengers, thus bequeathing its submarine fleet with just two Archers
and two Type-218SGs.15
Enablers and Constraints
Singapore is able consistently to pursue its phased submarine capacity-

building programme in no small part due to a number of favourable fac-
tors. The key enabler is funding commitment, which is important because
of the high costs of acquiring, operating and maintaining a working
submarine fleet, including its supporting infrastructure. Fortuitously,

despite the Asian Financial Crisis in 1997–1998, the Singapore
Government kept defence spending more or less consistent, whereas
neighbouring countries in Southeast Asia adopted a “feast and famine”
approach in defence appropriations16 which put their defence acquisition
programmes, including submarines, on the back-burner.
Singapore’s defence spending is generally insulated from economic
performance and is capped at up to 6% of the annual gross domestic
product. It not only allows the SAF to generally maintain its operational
readiness but also facilitates capability enhancement programs, including
indigenous defence research and development.17
Defence funding is also insulated from domestic political intrigue. Of
course, this is greatly helped by the fact that the parliament is dominated
by the ruling People’s Action Party. However, it would be misleading
to say that the political opposition is against this policy; on the contrary,
the opposition parties in the parliament have been generally support-
ive. Parliament debates over defence and security issues revolve around
largely the National Service policy—which is widely tied to broader
socio-economic, social security and national identity issues after the
recent foreign immigrant influx. Only the Singapore Democratic Party
has argued for reduced defence allocations in favour of more investments
in social security but it failed to gain any seats during the September
2015 General Elections; this may imply that the electorate does not gen-
erally subscribe to “radical” ideas of slashing defence budget.18
Having one of the world’s highest levels of Internet penetra-
tion,19 Singapore also has better-informed populace which has taken an
increased and generally supportive interest in government policy. Prior
to the 2015 General Election, a public opinion survey (see Fig. 6.1)
conducted by an independent consultancy showed clearly that an over-
whelming majority of Singaporeans continue to support current govern-
ment policy in the area of defence and national security. This could have
foretold the dramatic increase in vote share for the PAP during that elec-
tion, thereby signalling public support for the continuation of such poli-
cies in the next four years at least.
Therefore, fiscal and domestic political factors do not significant hinder
Singapore’s submarine capability development. Furthermore, Singapore
does enjoy another key enabler for smoother assimilation of such complex
technology—a populace, especially the younger segments, is not just liter-
ate and generally well educated but also technologically “savvy”.
90 C. KOH SWEE LEAN
Fig. 6.1 Singaporean perceptions towards defence and national security, 2015.

Source Extracted from: “Satisfaction with Government since GE 2011 at high
level, survey shows”, Channel NewsAsia, 22 August 2015; at: http://www.
channelnewsasia.com/news/singapore/satisfaction-with/2050828.html.
Blackbox Research full report can be found at: http://www.blackbox.com.sg/
wp_new/wp-content/uploads/2015/02/Blackbox-Year-in-Review-2014.pdf
Finally, the other enabler is a burgeoning local defence industry. Since

the induction of the A12 boats, Singapore Technologies Engineering
Marine (ST Marine) has cultivated a working relationship with Swedish
submarine builder Kockums, acquiring experience in modifying the boats
to suit the tropical operating environment as well as in the area of system
maintenance.20
Having a small submarine force and given the well-entrenched posi-
tions of established foreign submarine builders, it does not make eco-
nomic or commercial sense for Singapore to venture into the industry
of building submarines for domestic and export purposes, but it is
already delving into niche areas of submarine technology. Notably, an
indigenous submarine combat management system co-developed by ST
Electronics and Atlas Elektronik will be installed on board the Type-
218SG.21 This approach of focusing on niche capabilities for incremental
upgrades or enhancements of existing platforms can be seen in the other
SAF services as well.
Singapore’s only constraint is geopolitical in nature. While appar-
ently “arming itself to the teeth”, Singapore needs to demonstrate that
it carries no ill strategic intent and that the capabilities acquired are
merely for defensive purposes. Being in a sensitive neighbourhood, it
has to consider the perceptions of its close neighbours. Much is known
about Total Defence as the centrepiece of Singapore’s national security
approach as well as its double-pronged defence policy of deterrence and
diplomacy. Nonetheless, there is little discussion about how Singapore
conceptualises its security policy, which certainly goes beyond deterrence

and diplomacy.
The only defence white paper published so far by Singapore in 2000
provided a general overview but lacked detail. Nonetheless, it is possible
to get a hint from Singapore’s security policy instead, which is based on:
(1) good neighbourliness; (2) sense of community; (3) multilateralism;
(4) relevance and usefulness; and (5) deterrence and defence.22 The last
aspect supports the process of building a credible submarine capability in
Singapore. But other aspects are particularly interesting.
The first concerns unilateral naval arms control restraint, which is evi-
dent in the RSN’s apparent choice of capabilities. Despite Malaysia’s
acquisition of the SM-39 Exocet and Vietnam’s acquisition of Klub-S
land-attack cruise missiles, Singapore has not followed in their footsteps
by acquiring these long-range, stand-off underwater-to-surface guided
weapons (USGW) to give its submarines such a force projection capability.
The second aspect is defence diplomacy and “rules-shaping”, for
instance Singapore’s efforts to date in promoting regional submarine
cooperation. Since 2001, the RSN has regularly participated in the Asia-
Pacific Submarine Conference—a platform for navies to promote confi-
dence-building and share best practices in submarine operations—and
Pacific Reach, a multinational submarine emergency management and
response exercise. It also shared its suite of submarine rescue capabili-
ties, thus becoming some sort of a “common security goods provider”—
notably signing bilateral submarine rescue agreements with Indonesia
and Vietnam. The latest one was signed in May 2015 with the US Navy
which will further hone the RSN’s capability in this respect. Besides such
confidence-building and reactive measures, Singapore has strongly cham-
pioned for preventive, water-space management measures, most notably
an institutionalised submarine operational safety framework.23
Altogether, these initiatives can be seen as Singapore’s attempt to
dampen external perceptions of its submarine capacity-building efforts.
As such, its navy’s subsurface arm literally serves a defence diplomacy
function.24
Conclusions
In view of its strategic imperatives, the submarine forms a key facet of
Singapore’s quest for a balanced navy. Fortuitously, Singapore’s quest for
a submarine capability has been made possible by a series of economic,
92 C. KOH SWEE LEAN
societal and industrial enablers. However, being a small state with a

peculiar geostrategic location and surrounding security environment,
Singapore has cautiously and prudently to pursue its undersea capability
programme and needs to play the role of responsible security stakeholder
in the region. In developing its submarine capabilities, Singapore needs
to balance between national deterrence and defence requirements on the
one hand, and managing external perceptions on the other.
Notes
1. “Dutch submarine to help NATO combat piracy off Somali coast”, North
Atlantic Treaty Organization, 28 June 2010; at: http://www.nato.int/
cps/en/natolive/news_64706.htm.
2. Though not a claimant, Singapore is keen on upholding freedom of navi-
gation and overflight in the area to insure its national survival and pros-
perity.
3. Swee Lean Collin Koh, “‘Best Little Navy in Southeast Asia’: The Case
of the Republic of Singapore Navy”, in Michael Mulqueen, Deborah
Sanders and Ian Speller, Small Navies: Strategy and Policy for Small
Navies in War in Peace (Surrey, UK: Ashgate Publishing Ltd.), 120–121.
4. Swee Lean Collin Koh, “Seeking Balance: Force Projection, Confidence
Building, and the Republic of Singapore Navy”, Naval War College
Review, Vol. 65, No. 1 (Winter 2012), pp. 75–92.
5. Sanjay Pereira, “Singapore may buy subs if needed, says Dr Lau”, Straits
Times, 11 December 1994; “New sub enhances stealth, endurance capabili-
ties of the RSN”, Ministry of Defence, Republic of Singapore, 17 June 2009.
6. Ken Booth, Navies and Foreign Policy (London: Croom Helm; NY:
Crane, Russak, 1977), 51, 54.
7. “Singapore to take close look at Kockums submarines”, Svenska
Dagbladet, 16 August 1989.
8. Less than a month after the RSN purchased the first A12 boat from
Sweden, then Senior Minister Lee Kuan Yew remarked that the subma-
rine purchase was not attributed to any regional anxiety over China’s
military build-up but because it was cheap. “Here is the Swedish sub-
marine”, he said. “The economy is doing well and it is a cheap sub.
Its purchase will still be within the five percent of GDP (gross domes-
tic product) assigned to defence. So, why not use it for some training?”
“New submarine not linked to Asian arms race – Lee”, Reuters News, 11
October 1995.
9. Even though the Archer class was commonly touted as the A17
Västergotland, actually it should be more accurately seen as a Singapore
version of the Södermanland class instead.
10. The author made this observation during one of his visits to the base,
when seen from the deck of a foreign warship on port visit to Singapore,
and via RSN-released photographs (including those of President Tony
Tan’s visit to Changi Naval Base by in early March 2016; see third picture
in the photo gallery on the Ministry of Defence webpage, at: http://
www.mindef.gov.sg/imindef/press_room/official_releases/nr/2016/
mar/02mar16_nr.html). This facility is co-located with the open berths
and appears to be sturdily built and hardened with concrete and rein-
forced steel. It is also situated in front of the 171 Squadron Headquarters
building. The structure is clearly designed to house submarines, since
the opening is too low in height for any surface warships with a sizeable
superstructure and mast to enter (except unmanned surface vessels or
USVs, but the facility would be too large to just house them). It could
well be a multi-purpose hardened shelter, but the most likely asset to
require such protective measures should be the submarine.
11. “Republic of Singapore Navy Launches New Submarine Training
Centre”, Ministry of Defence, Republic of Singapore, 11 March 2015.
12. This blueprint outlined three key capability enhancements to revitalise
the RSN and keep in pace with contemporary technological develop-
ments and evolving security environment: a fleet of eight Littoral Mission
Vessels (LMVs) to replace the existing Fearless class patrol vessels and
Bedok class mine countermeasures vessels; two Type-218SG submarines
as well as one or two Joint Multi-Mission Ships (JMSS) which are to pos-
sess larger capacity than the existing landing platform docks. Speech by
Dr Ng Eng Hen, Minister for Defence, at Committee of Supply Debate
2014, Ministry of Defence, Republic of Singapore, 6 March 2014.
13. Fresh details of the Type-218SG were revealed during the International
Maritime Defence Exhibition (IMDEX) Asia 2015, when its model was
showcased at the ThyssenKrupp Marine System GmbH (TKMS) booth.
The boat measures 70 m long and 6.3 m wide, weighing 2000 tons.
Besides sharing certain characteristics as the RSN’s former Swedish boats,
for example the X-shaped rudders, this boat has eight torpedo tubes
and is equipped with an AIP. “Model of Singapore’s new submarines on
display”, Straits Times, May 20, 2015. See also, Kelvin Wong, “TKMS
starts construction of Singapore’s Type 218SG submarines”, Jane’s Navy
International, 28 June 2015.
14. The author gathered from his conversation with industrial representatives
involved in the Type-218SG project that the RSN would have been keen
to stick to Swedish boats, for example the A19 Götland or new-generation
A26, if not because Kockums—which constructed the A12 and A17 and
has cultivated a long working relationship with the RSN—was forbidden
to submit its bid, especially given its earlier acquisition by TKMS in 2011.
94 C. KOH SWEE LEAN
15. “MINDEF Signs Contract to Acquire Two Submarines”, Ministry of

Defence, Republic of Singapore, 2 December 2013.
16. See, for instance, Speech by Minister for Defence Teo Chee Hean, at
Committee of Supply Debate 2009, Ministry of Defence, Republic of
Singapore, 12 February 2009.
17. For example, Defence Minister Ng Eng Hen said at the Committee of
Supply debate in 2015: “when we plan, we plan over a long term horizon
and not year-on-year, but over a five- to ten-year period. It allows us to
make sure that we don’t adjust suddenly, whether it is manpower train-
ing or platform acquisition. It is also productive because you plan over
a longer time horizon. We do not buy a platform when it is just new.
We watch when the price comes down; before production goes down and
the price goes up again. It allows us to plan when to acquire”. Speech by
Dr Ng Eng Hen, Minister for Defence, at Committee of Supply Debate
2015, Ministry of Defence, Republic of Singapore, 6 March 2015.
18. In fact, SDP did not perform as well for GE2015 as in the previous 2011
round. For example, a team contesting the Holland-Bukit Timah Group
Representative Constituency, made up of several of party’s heavyweights,
only garnered 33.4% of the votes, a drop from 39.9% back in 2011. Lee
Min Kok, “GE2015: SDP chief Chee Soon Juan moots possibility of
working with WP at next election”, Straits Times, 13 September 2015.
19. By 2014, the number of internet users per 100 persons in Singapore
amounted to 82, the highest in Southeast Asia compared to Brunei
(68.8), Cambodia (9), Indonesia (17.1), Laos (14.3), Malaysia (67.5),
Myanmar (2.1), the Philippines (39.7), Thailand (34.9) and Vietnam
(48.3). Internet users (per 100 people), The World Bank, at: http://data.
worldbank.org/indicator/IT.NET.USER.P2.
20. In April 2012, ST Marine and Kockums established a 51/49 joint ven-
ture known as Fortis Marine Solutions Pte Ltd that was intended to
refit and maintain the RSN’s Swedish-built SSKs. ST Marine was said
to invest US$510,000 whereas Kockums invested US$490,000. “ST
Marine, Kockums join forces for Singaporean Navy’s submarines”,
SeeNews Shipping, 4 April 2012; “ST Engineering’s Marine Arm Injects
Additional Capital into Fortis Marine Solutions”, Singapore Technologies
Engineering, October 9, 2012. See: http://www.stengg.com/press-
centre/press-releases/st-engineerings-marine-arm-injects-additional-
capital-into-fortis-marine-solutions. See also, David Boey, “ST Marine
acquiring skills for submarine maintenance”, Business Times Singapore, 27
February 1998.
21. Kelvin Wong, “TKMS starts construction of Singapore’s Type 218SG
submarines”, Jane’s Navy International, 28 June 2015.
22. Speech by Mr Lim Hng Kiang, Minister for National Development and

Second Minister for Foreign Affairs, on “The Challenges to Small
Nations’ Foreign Policies”, at the Ministry of National Development
(MND) Auditorium on Saturday, 29 July 1995 at 3.00 PM, Ministry of
Foreign Affairs, Republic of Singapore.
23. Address by the Republic of Singapore Navy, Chief of Navy, Rear-Admiral
Lai Chung Han, at the 15th Asia Pacific Submarine Conference Opening
Ceremony, Ministry of Defence, Republic of Singapore, 19 May 2015.
24. For example, the Swift Rescue, which is part of the RSN’s subsurface com-
ponent, was instrumental in the search-and-locate operations following
the crash of AirAsia flight QZ8501 in late December 2014. “The SAF
Concludes Deployment for QZ8501 Search Operations”, Ministry of
Defence, Republic of Singapore, 18 January 2015.
Author Biography
Collin Koh Swee Lean is a Research Fellow at the Maritime Security Programme,
part of the Institute of Defence and Strategic Studies which is a constituent unit
of the S. Rajaratnam School of International Studies (RSIS). He is especially inter-
ested in researching on naval affairs in the Indo-Pacific, focusing on Southeast Asia
in particular, and generally issues related to naval technologies, naval modernisa-
tion, naval arms control and the offence–defence theory. Collin also taught at the
Military Studies Programme and taught various professional military education
and training courses with the Singapore Armed Forces Training Institute. Prior
to join the Maritime Security Programme, Collin worked at the Military Studies
Programme (2010–2014) and the Centre for Non-Traditional Security Studies
(2008–2010), also at RSIS.
CHAPTER 7
Submarine Acquisition in Malaysia
Dzirhan Mhadzir
Abstract  The reasons for submarine acquisition in Malaysia are explored

against the general strategic context in Southeast Asia and the country’s
unique approach to the challenges it identifies is demonstrated. The con-
tribution that submarines are thought to make to Malaysia’s security is
discussed, and the technological, economic and demographic problems
their acquisition poses are identified.
Keywords  Naval modernisation · Submarines · Malaysia

Stability in Southeast Asia
Malaysia’s submarine programme provides a unique example of the way

in which external factors outside the military can impact their plans. In
Malaysia’s situation, the two factors that have an effect on the country’s
submarine programme are firstly the issue of public perception and politi-
cization of the submarines’ purchase and existence and secondly the state
of Malaysia’s economy. While both factors have not currently affected
significantly any aspects of the actual operations of Malaysian submarines,
they will be expected to have a significant impact in regard to the future
direction and possible expansion of Malaysia’s submarine fleet.
D. Mhadzir (*) 
Malaysian Armed Forces Defence College, Kuala Lumpur, Malaysia

98 D. Mhadzir
Before going further into this, a brief summary of the history of

Malaysia’s submarine program is provided to set forth the context. Since
the 1980s, the Royal Malaysian Navy had sought a submarine capability
and sent a small number of personnel to undergo submarine qualification
training overseas. However, it was not until 2000 that a serious competi-
tion for submarines came into play with Armaris (now known as DCNS)
of France and TKMS being the leading contenders.
A sidebar to this was the presence of two decommissioned ex-Dutch
Navy Zwaardvis-class submarine which were shipped to Lumut to the
PSC Naval Dockyard facilities in 2000 as part of a venture between
Dutch company RDM Submarines and PSC Naval Dockyard to sell
the submarines to Malaysia. At the time, PSC Naval Dockyard was rid-
ing high, having previously secured the contract to build the six Kedah
class Next Generation Patrol Vessels. Yet already during that time the
RMN was not keen to have further dealings with PSC because it was
not confidant that the company was as fully capable as it was made out
to be, something which was borne out subsequently by the later failure
of PSC to complete the Kedah class ship. This subsequently led to the
government having to inject additional funds along with orchestrating a
takeover of PSC through the government-linked Boustead company in
order to complete the ships. With the failure to secure a sale to Malaysia
and to any other country, the submarines were left in Lumut and dete-
riorated to the extent that they were only fit for scrap and matters were
not helped with the collapse of RDM Submarines, which had pinned its
viability on the sale of their Moray submarine design but failed to find
a buyer. Eventually, the Dutch government, mindful of the implications
of the transfer of technology and knowledge that could be gleaned from
the hulls, paid to have both submarines scrapped in 2006.
In June 2002, the signing of a 1.04 billion Euro contract for two
Scorpene class submarines with the French company Armaris and the
Spanish company Izar (now known as Navantia), the joint builders of
the Scorpene, was carried out and this was followed in July 2003 with a
contract with Armaris for training 150 personnel of the Royal Malaysian
Navy (RMN) as submariners; the contract also provided for the with-
drawal from service French Navy submarine Ouessant, an Agosta class
submarine, to serve as a training vessel. The first batch of RMN person-
nel arrived in Brest, France, at the end of April 2005 to begin training.
At that time, controversy had already arisen over the role of Mr Razak
Baginda in the purchase and also the award of a contract to Perimekar,
7 SUBMARINE ACQUISITION IN MALAYSIA 99
a company linked to Mr Razak Baginda, for handling the logistical sup-

port for the RMN’s submarine force personnel in France. Given that Mr
Razak Baginda was known to be closely linked to and a former adviser to
the then Defence Minister Dato Seri NajibTun Razak, the political oppo-
sition questioned the nature of the awards plus whether the payments
made by Malaysia for the submarines included the commission fee said
to be paid by Armaris to Razak Baginda. Matters came to a head in 2006
with the murder of Altantuya Shaariibuu, whose murder was alleged to
be linked to the sale of the submarines and also to her involvement with
Razak Baginda.1
At the same time, while this drama was being played out, the RMN
had decided to invite the public to suggest names for the two subma-
rines with the inevitable result that there were less than charitable
suggestions from some quarters of the public for the names of the sub-
marines. The RMN subsequently decided to name the submarines after
the first two Prime Ministers of Malaysia. On 5 May 2008, the then
Malaysian opposition leader Datin Seri Wan Azizah Wan Ismail, during
a Parliament session, called for an inquiry into the purchase of the two
Scorpene submarines saying that an independent board of inquiry should
be established because the government had paid inflated prices and hefty
commissions. “The government is urged not to hesitate to carry out a
thorough investigation into any bias or fraud that occurred”, she said.
“It is important to ensure that there is no attempt to protect any senior
government officials or to cover up a weapons-purchase scandal which
involves billions of taxpayer dollars” she said, adding that in the purchase
of the Scorpene submarines a commission of RM530 million was paid by
manufacturer Armaris to Perimekar, Responding in a 6 May 2008 press
conference, Dato Seri Najib said that the purchase had been in line with
government procedures and that there had been no wrongdoing. “Don’t
make wild allegations”, he said. “You must focus on actual facts”.2
Training of the submarine crews and constructions of the submarine
in the meantime continued unimpeded though, with the first subma-
rine, KD Tunku Abdul Rahman launched in France in October 2007
and commissioned in January 2009, while the second submarine KD
Tun Abdul Razak was launched in Spain in October 2008 and commis-
sioned in December 2009. The decision had been made to have the sub-
marines based at RMN Kota Kinabalu located in Teluk Sepanggar in East
Malaysia. This was due to the fact that RMN Lumut was not operation-
ally suitable for the submarines given that the submarines would have to
100 D. Mhadzir
transit through the narrow Straits of Malacca every time if it was based
there but deploying eastwards. The RMN naval base at Kuantan while
giving access to open seas was too small and too close to the commer-
cial port for the submarines to operate from there and building another
base on the East Coast of Peninsular Malaysia was rejected due to the
East Coast’s propensity for flooding and being more vulnerable to the
monsoon season. In any event, Peninsular Malaysia was too close to
neighbouring countries for submarines to be operated unnoticed. RMN
Kota Kinabalu on the other hand was ideal, being well away from neigh-
boring countries and enjoying easy access to open seas and it was slated
to be the main naval headquarters and base in East Malaysia with the
planned relocation from RMN Labuan, which was being handed back
to the civil authorities there. As far as the writer knows, the proximity of
Sepanggar to the Spratly Islands played very little part in the decision,
which was unsurprising given that at that time, the issue of competing
claims in the South China Sea had quietened down. Cost factors pre-
vented the RMN’s original plan of a submarine base built into a cavern
as the Swedish Navy had.
The RMN’s first submarine, KD Tunku Abdul Rahman returned to
Malaysia in September 2009 where it subsequently began operational
trials. Reports then emerged in January to February 2010 where it was
revealed that there were several defects in the submarine which tempo-
rarily rendered it unable to dive. This was successfully seized upon by
the political opposition and made into a mantra that the Malaysian sub-
marines could not dive at all times plus coupled with the ongoing con-
troversy over the submarine purchase and the murder of Altantuya led
to the submarines having a poor image among some segments of the
public. In 2011, in order to quell persistent claims that the submarines
could not operate and dive, then Defence Minister Dato Seri Ahmad
Zahid Hamidi arranged for Penang Chief Minister Lim Guan Eng, a key
opposition figure to embark on the submarine KD Tun Abdul Razak
and experience the submarine travelling underwater. While this tempo-
rarily quelled the mantra of the submarines being unable to operate, the
image of the Malaysian submarines as a byword for wastage and corrup-
tion along with the linkages to a murder continues to persist particularly
with Dato Seri NajibTun Razak’s tenure as Prime Minister.
During the 2013 Sulu incursion, segments of the public queried
why the submarines could not prevent the incursion, and in 2014, dur-
ing the search for MH370, an erroneous Singapore news report on the
commitment of the Republic of Singapore Navy’s submarine rescue ship

MV Swift Rescue to the search which called the ship a submarine instead
of a submarine rescue vehicle led to calls by the opposition and the pub-
lic as to why Singapore could commit a submarine to the search while
Malaysia’s two submarines did nothing. This resulted in Chief of the
RMN, Adm Tan Sri Aziz Jaafar’s having to issue a public statement as to
why submarines were not ideal for underwater searches hence the reason
for the non-participation of the RMN’s submarines in the search, though
this statement was undone when the UK subsequently announced the
commitment of the submarine HMS Tireless to the search.
While the RMN has been fairly tightlipped on the operations of its
submarines and publicly declaring they have been happy with the sup-
port and maintenance of the submarines, there are indications that not
all was well as it seemed. Retired Rear Admiral Rosland Omar who was
deputy director of the RMN’s submarine project from 2003 to 2006
before becoming the director from 2006 to 2009 was quoted in an Asia
Pacific Defence Reporter article on some of his dissatisfaction with the
RMN submarine project.3 Rear Admiral Rosland was cited as saying,
when asked how would he do things differently given his experiences, he
would ensure that the contract would include everything explicitly as the
French side would not do anything not stated in the contract without a
contract amendment. He also said that both submarines were supposed
to be available to the RMN for 130 days per annum but that rate was
not achieved. He also pointed out that substantive cause of the prob-
lem was a lack of timely spares provision. Maintenance of the submarines
is done by Boustead DCNS Naval Corporation (BDNC), which was
set up in June 2009 as a joint subsidiary by Boustead Heavy Industries
Corporation (BHIC) and DCNS to provide support for the two DCNS
Scorpene class submarines with BHIC owning 60% and DCNS owning
40% of BDNC.
On 30 March 2015, BHIC announced that BDNC had received a let-
ter of acceptance from the Malaysian government to extend submarine
support services until May 2017 with the value of the contract exten-
sion being announced as RM531.2 million. The original submarine sup-
port contract, awarded in 2010, was scheduled to expire by late 2015.
The extension of the support services contact was followed in by an
announcement on 16 November 2015 that BDNC had received a con-
tract for the refit of the two submarines with a dual contract value of
EUR169.8 million and RM432.4 million. The work will be carried out
102 D. Mhadzir
at RMN Kota Kinabalu, where BDNC has several purpose built facili-
ties for the task, with three completed workshops being handed over on
16 January 2016 by the RMN to BDNC. While the submarine support
facilities are for the use of the RMN, they could in the long term form
also a useful infrastructure facility for the USA and Australian submarines
operating in the region. Particularly with DCNS winning the Australian
Collins class replacement programme, the USA and Malaysia have been
increasing submarine cooperation with annual port calls by USN subma-
rines and submarine tenders to RMN Kota Kinabalu along with annual
staff talks and so has Australia, with the most recent being the submarine
HMAS Dechaineux carrying out a 2-day exercise with the RMN subma-
rine KD Tunku Abdul Rahman between 12–14 October 2015.
Initially in 2006, Malaysia held a trilateral submarine staff talks with
the Royal Australian Navy and US Navy but in 2007 this had changed
into separate annual bilateral talks by the RMN with both navies and as
mentioned earlier both the RAN and US Navy have had a continuous
series of engagement and cooperation. The RMN also is gearing itself
up for increased interoperability with the US submarine force, as was
highlighted in a US Navy release in September 2015 after the RMN and
US Navy Submarine Staff Talks 2015 held in Guam. Here, it was stated
that the talks focused on reviewing and establishing plans for joint train-
ings and exercises in 2016 and beyond.4 A further example of the RMN
submarine force moving towards interoperability with their US counter-
parts is seen in the acquisition of a Ship Interface Template Set (SITS).
On 4 January 2016, the Malaysian Ministry of Defence issued a tender
for the transportation of a completed SITS from the USA to RMN Kota
Kinabalu. SITS comprises support structures that are welded onto a ves-
sel’s deck enabling the rapid integration of the US Navy’s Submarine
Rescue Diving and Recompression System (SRDRS) and Pressurised
Rescue Module System (PRMS) on a Vessel of Opportunity. In this case,
the SITS would allow the RMN’s submarine rescue ship MV Mega Bakti
to deploy the US systems which in turn would only be required if con-
ducting a rescue of a USN submarine rather than an RMN for which
the MV Mega Bakti already has the integral equipment.5 The MV Mega
Baktitook part in the 2016 Pacific Reach submarine rescue exercise held
in the Republic of Korea from 23 May to 3 June 2016 in which among
the exercises it was involved included simulated rescues of personnel
from an RAN submarine and a ROKN submarine.6 The MV Mega Bakti
is operated by a private Malaysian company, Target Resources SdnBhd,
under a 20 year service contract, originally the contract was to have been
award in 2009, but the Finance Ministry told the Defence Ministry to
renegotiate the deal and it was thus only awarded in 2012.
Malaysia hosted the annual Asia Pacific Submarine Conference in
September 2014 where the theme was “Enhancing Interoperability for
Safety”, the conference was attended by 61 participants which as well as
international navies also included the International Submarine Escape
and Rescue Liaison Office (ISMERLO).7
Cooperation has also being going on constantly with the French
Navy and French Navy officers were previously stationed at the Ministry
of Defence in Kuala Lumpur to assist with the RMN submarine pro-
ject before being relocated to RMN Kota Kinabalu with the arrival of
the RMN submarines in Malaysia. The most recent exercise between the
French Navy and RMN was a 2-day Combined Anti-Submarine Exercise
(Casex) between the submarine KD Tun Razak and the French Navy
frigate Provence between 16–18 February 2016. During the Casex, the
RMN Submarine Force Chief of Staff, Capt Baharudin Wan Md Nor
told the media that a number of RMN submarine personnel had already
clocked more than 10,000 h underwater in 7 years of operations.8
Beyond such exercises, the RMN has made it a policy not to generally
disclose the operational activities of its submarines though occasionally
that policy is relaxed with postings on social media and disclosures to
the media via press statements or postings on the RMN’s official home
page. The current RMN Chief, Admiral Tan Sri Kamarulzaman Ahmad
Badaruddin posted a tweet on twitter on 28 June 2016 announcing an
RMN submarine had reached a 21 days at sea milestone while the official
account for the RMN Submarine Force, RMN Subforce tweeted on 21
August that it had completed a 4th Black Shark torpedo launch since the
submarine’s return to Malaysia.9 It is expected that the RMN submarines
are employed in the traditional submarine peacetime role of conducting
covert surveillance and patrols.
The Black Shark torpedoes and the sub launched SM39 Exocet mis-
sile form the Scorpene’s armament and the KD Tunku Abdul Rahman
conducted a live test firing on 26 July 2010 in the South China Sea. The
weapon, launched from a distance of 40 km and when the submarine was
at a depth of 55 m, successfully destroyed a 40-m long target. The fir-
ing was part of an exercise that the submarine was taking part in. That
exercise, Operation Sea Training Exercise/Fleet Integration Training
With Submarine 2010 (OSTEX/SUB FIT 2010) involved 10 other
104 D. Mhadzir
RMN ships including the frigates KD Lekiu and KD Lekir and the Patrol
Vessels KD Perak, KD Terengganu, KD Pahang and KD Kedah and 1000
personnel from the RMN and Royal Malaysian Air Force (RMAF). Also
participating were elements of the RMN’s special forces, diving and air
defence teams. The RMAF fielded two BAE Hawks, a Beechcraft 200T
Maritime Patrol Aircraft and an S-61 helicopter for the exercise. The
exercise was staged from the RMN’s COMNAV 2 HQ at RMN Kota
Kinabalu. An RMN official press release on the exercise stated that the
purpose of the exercise was to assess the RMN’s fleet readiness, develop
the capabilities of the RMN and RMAF in operations with submarines,
to highlight the RMN’s presence in the South China Sea and to test con-
tingency plans for the defence of the RMN posts located in the Spratly
Islands. The RMN though has held much of the training and firing exer-
cises involving submarines well clear of the Spratlys so as not to inflame
other claimants there. Even so the need to highlight the RMN’s presence
in the South China Sea and to test contingency plans to defend the RMN
stations also highlights some of the wartime scenarios that the RMN sub-
marines are expected to face. As mentioned earlier, the planned location
of the submarine base in Sepanggar was not related to the Spratlys but
the decision proved to be fortunate for Malaysia with the Spratlys issue
becoming active again after the decision to build the base there.
While the current angst among the political opposition and some seg-
ments of the Malaysian public over the submarines have not affected the
operations of Malaysia’s submarines and have basically been little more
than a source of constant annoyance to the RMN and Malaysia’s Ministry
of Defence, the long-term issue is what it bodes for the future of the
RMN’s submarine capability/Purchases of additional submarines would be
a hard sell in the future, particularly if the political opposition gains power.
It will be a while though before the RMN plans to expand its submarine
fleet, however, as a written reply in May 2015 by RMN Chief Admiral Tan
Sri Aziz to the writer on the future of the RMN’s submarine fleet states,
For a start, the two submarines are quite adequate for the RMN specific
submarine operations requirement. Since the submarine force is still in
its infant stage, we are paying particular attention to ensure that we do
everything right the first time in conducting its training, maintenance and
operation. It is paramount that these submarines are being operated safely,
effectively and efficiently before we embark into the future plan of the sub-
marine force. We reckon it will take us at least another 5 years or so before
we are able to plan for more submarines.
Given that timeframe, however, it should be noted that the political lead-
ers of that future time along with the public would all have been around
in the time of the controversy over the submarines purchase and maybe
unwilling to support any submarine purchase then due to the residual
stigma from the circumstances of the initial purchase.
Aziz’s successor as RMN Chief, Admiral Tan Sri Kamarulzaman
Ahmad Badaruddin, who took over as RMN Chief in November 2015,
has followed a similar tack on the future of additional submarines for the
RMN, in that additional submarines are still far off, though his ‘15 to 5’
RMN Strategic Plan which calls for the reduction of ship classes in the
RMN from 15 classes to 5 classes acknowledges the long-term expan-
sion of the RMN’s submarine fleet to four submarines from the current
two in service. The fact is that two submarines are insufficient to fully
meet operational requirements effectively and the recent overhaul and
refit of the Scorpene submarines means that currently, KD Tunku Abdul
Rahman has been unavailable since November 2015 due to the work
while KD Tun Razak begins its unavailability in June 2017 as per the
DCNS press release dated 8 April 2015 which stated,
The Malaysian government has just signed a new contract with Boustead
DCNS Naval Corporation for through-life support for the two 2000 type
Scorpene submarines of the Royal Malaysian Navy, based at Kota Kinabalu,
Sabah. The contract signed at the end of March will remain in force for
over two years (on May 31 2017). This new agreement makes it possible
to extend the through-life support time for the two 2000 type Scorpène
submarines currently in service before the beginning of their first major
maintenance campaign. Indeed, the Tunku Abdul Rahman should start its
period of unavailability for major repair and overhaul (ROH) in November
2015 and the Tun Razak in June 2017.
This means that for more than 3 years from November 2015, the RMN
will only have one operational submarine and at certain periods dur-
ing that time will not have an operational submarine to call upon. The
limitation of operational availability due to having two submarines is
why Singapore maintains a constant fleet of four submarines. Indeed in
the initial stages of negotiation, it was expected that the RMN would
opt for four submarines or take two with an option for a further two
more but the costs of such limited the procurement of two submarines
which causes difficulty in operational availability. However, expanding
the fleet of submarines even by an additional two would entail significant
106 D. Mhadzir
procurement and also operational maintenance costs, and given that the
RMN’s ageing fleet and the demands of operations in securing Eastern
Sabah from incursions and kidnappings are already straining the RMN
budget, it would not be fiscally and operationally viable for the RMN to
expand its submarine fleet.
The second factor is the state of Malaysia’s economy, given the con-
tinuing depreciation of the ringgit and the worsening of Malaysia’s econ-
omy, it might have to be asked as to whether Malaysia can even fiscally
afford to expand beyond its current fleet particularly given submarines
are expensive assets to purchase and operate. While the future of any
nation’s economy is difficult to predict, the lesson here is that countries
purchasing submarines should not only consider the fiscal situation sur-
rounding the current or planned purchase but also beyond that. The
question for naval planners might be to consider whether they can afford
to continue beyond an initial purchase and nascent capability or would
they be better off forgoing such given that they cannot fiscally afford to
go further after the initial stage.
Given the current situation surrounding Malaysia, it would appear
that for the future, the Royal Malaysian Navy is likely to remain within
its current submarine fleet size for a significant time.
Notes
1. In 2008, the Malaysian High Court acquitted Abdul Razak Baginda of
involvement in the murder and in the following year two Police comman-
does were found guilty of the murder and sentenced to death. “Ex-Najib
aide says he is living in Malaysia” The Straits Times, 5 Nov 2016.
2. Malaysian government denies any wrongdoing in defence deals—Dzirhan
Mahadzir Janes Defence Weekly 15 May 2008.
3. Reference Check Part 3—The Malaysian Experience—Rex Patrick, Asia
Pacific Defence Reporter, May 2016, pp. 38–39.
4. USA, Royal Malaysian Navy Submarine Leaders Participate in Guam Staff
Talks—US Navy Press release online at the US Navy official website at
http://www.navy.mil/submit/display.asp?story_id=92257.
5. Malaysia enhances submarine rescue interoperability with US Navy—
Dzirhan Mahadzir, Janes International Defence Review, 6 January 2016.
6. Submarine rescue vessel tested and proven in drill—The Star 18 June 2016,
online copy at http://www.thestar.com.my/news/nation/2016/06/18/
submarine-rescue-vessel-tested-and-proven-in-drill/.
7.
RMN To Share Knowledge On Submarine Escape and Rescue With
APSC Participants—Bernama National News Agency 9 September 2014,
online copy at http://www.bernama.com/bernama/state_news/news.
php?id=1067245&cat=sbe.
8.
RMN’s submariners spend over a year underwater—The Sun 16 April
2016 online copy at http://www.thesundaily.my/news/1747784.
9.
RMN Subforce tweet—https://twitter.com/RMN_Subs/status/767579150
936702976.
Author Biography
Dzirhan Mahadzir is a freelance defence journalist and analyst based in Kuala
Lumpur, Malaysia. He has guest lectured at the Malaysian Armed Forces
Defence College on various topics pertaining to strategy and military history
from 1999–2003 and regularly gives presentations on the Malaysian Armed
Forces and Malaysia’s defence developments to visit delegations from mili-
tary institutions such as the US National Defense University, USAF Air War
College and the Australian Staff College. Amongst the publications he has writ-
ten for and currently writes for since 1998 include Defence Review Asia, Janes
Defence Weekly, Navy International, International Defence Review, Asian
Defence Journal, Defence Helicopter, Asian Military Review and the Asia-Pacific
Defence Reporter. He holds an MA in Defence and Security Analysis from the
University of Lancaster, UK, and an LLB Law Degree from the University of
Wolverhampton, UK.
CHAPTER 8
Submarine Acquisition in Vietnam
Carlyle A. Thayer
Abstract  The reasons for submarine acquisition in Vietnam are explored

against the general strategic context in Southeast Asia in general and the
South China Sea in particular, and the country’s unique approach to the
challenges it poses is demonstrated. The contribution that submarines
are thought to make to Vietnam’s security is discussed, and the techno-
logical, economic and institutional problems and their acquisition poses
are identified.
Keywords  Naval modernisation · Submariners · Vietnam

South China Sea · Stability in Southeast Asia
Background
In the mid-1980s, the Soviet Union agreed to assist Vietnam in the
development of an underwater warfare capability. A Vietnamese crew was
trained for service on a Project 641 diesel submarine in the Soviet Pacific
Fleet and formed part of Submarine Force 196. Mikhail Gorbachev later
suspended this programme.
C.A. Thayer (*) 
Thayer Consultancy, Northcott Drive, Australia

110 C.A. Thayer
In 1997, Vietnam acquired two Yugo-class mini submarines from

North Korea. They were berthed in Cam Ranh Bay. After repair and
overhaul, they were used for diver-related training and operations. That
same year, after the visit of a Russian Project 636 Kilo-class submarine
to Cam Ranh Bay, Vietnam was reported to have raised the possibility of
purchasing submarines. It was only in June 2000, however, that Vietnam
and Russia reportedly signed a memorandum of understanding that
included the possible sale of Kilo-class submarines to Vietnam.
In 2000, Vietnam and India signed a Defence Cooperation
Agreement that included Indian assistance in training Vietnam People’s
Army (VPA) Navy personnel including submariners. In October 2002,
Vietnam officially asked India to provide training for submariners. Four
years later, in May 2006, India announced that it would commence
training for VPA naval cadets and officers ‘in the very near future’.
During the first quarter of 2008, Vietnam made determined steps to
acquire submarines. Vietnam was reported to be interested in acquiring
submarines from Serbia, but the deal fell through. In September, dur-
ing the course of a visit by Vietnam’s Minister of National Defence to
Moscow, his counterpart announced that Russia was ready to provide
the VPA with ‘arms and military hardware’. Reports then circulated that
Vietnam and Russia signed a letter of intent to purchase six Project 636
MV enhanced Kilo-class or Varshavyanka-class submarines to be deliv-
ered by 2016. The following month Vietnam’s president, Nguyen Minh
Triet, visited Moscow and expressed an interest in expanding ‘military
technical cooperation’. Shortly after, it was reported that Russia and
Vietnam agreed in principle on the sale of Kilo-class submarines.
A major turning point was reached in 2009. On April 24, Vladimir
Aleksandrov, General Director of Admiralteiskie Verfi in St. Petersburg,
a subsidiary of the United Shipbuilding Corporation, announced that his
company had been identified as executor for a contract for six Improved
Kilo-class Project 636 submarines.1
On April 27, RIA Novosti reported that Rosoboronexport, the sole
state agency responsible for the sale of weapons, confirmed negotiations
with Vietnam were taking place on the sale of conventional Kilo-class
submarines to Vietnam and that an export contract with the VPA Navy
would be signed ‘in the next few months’.
On December 3, Vedomosti confirmed that negotiations on complet-
ing the sales contract were proceeding successfully. According to a man-
ager at Rossiyskiye Tekhnologii, the contract would include the delivery
8 SUBMARINE ACQUISITION IN VIETNAM 111
of the Kilo-subs, crew training and the construction of onshore basing

infrastructure.
Finally, on December 15, during the visit by Prime Minister Nguyen
Tan Dung to Moscow, the contract for the sale of six Varshavyanka-class
submarines and related equipment was signed between Rosoboronexport
General Director Anatoliy Isaykin and VPA Navy Vice Admiral Nguyen
Van Hien. Under the terms of the contract, Russia agreed to supply one
submarine a year over the next 6 years. The cost of the submarines was
valued at US $2 billion.2 Russian specialists will be involved in training,
outfitting and maintenance programmes.
Bob Nugent, a retired US Navy intelligence analyst with 22 years of
experience, evaluated Vietnam’s acquisition of a submarine fleet in late
2009 as follows:
What does it take for an ‘emerging’ Navy to make the successful transition
from two-dimensional (surface/air) to 3 dimensional force that includes
subs? We have observed that it has been a struggle for some SE Asian
navies with missions, force structures and funding not unlike those of
Vietnam to absorb submarines and produce an effective capacity in doing
so. Others seem to have handled the transition quite well…
What I draw from above is that Vietnam has the resources – national and
naval – to field a submarine force. It also has the manpower. And the mini-
sub experience provides a basic foundation for understanding submarine
operations and maintenance.
What the data doesn’t really help forecast is how well and how quickly
Vietnam will make the transition. My “gut instinct” is that their experi-
ence will be closer to Indonesia’s than Singapore’s – but a major unknown
is how much Russia will provide them in the way of sustained concrete
support over the coming years to help them effectively absorb a force of
KILOS.3
Russians Return to Cam Ranh Bay Military Port

On 25 March 2010, the Russian Defence Minister announced that
Russia would help Vietnam build a submarine base at Cam Ranh Bay.
Two years later, Russia confirmed it was planning to build a submarine
base at Cam Ranh Bay. At the same time, Vietnam announced it would
turn to India for full-scale underwater warfare training.4
112 C.A. Thayer
In 2010, it was revealed that the cost of Vietnam’s new submarine

fleet had risen from US $1.8 billion to US $3.2 billion.5 The unit cost
of construction increased from US $300 million to US $350 million.6
In addition, Vietnam will also pay an additional US $1 billion for arma-
ments, local support infrastructure and other equipment.
Vietnam’s Kilo-Class Submarines

Vietnam has purchased six diesel-electric advanced Kilo-class submarines
or Project 636.3-MV Varshavyanka-class Fast Attack Submarines (SSK)
designed by the Rubin Central Design Bureau for Marine Engineering.
They have improved range, firepower, reliability, speed and sea endur-
ance (Table 8.1).
The Varshavyanka-class submarines have been dubbed the ‘black
hole’ by the US Navy because they are one of the quietest diesel-elec-
tric submarine classes in the world. Their acoustic characteristics include:
improved stealth through removal of flooding ports and treating the hull
with multilayer anechoic rubber tiles; fitting on casings and fins absorb
sonar sound waves of active sonar thus results in reduction and distortion
of return signal, and sounds from within submarine reducing the range
of detection by passive sonar.
The Varshavyanka-class submarines are designed for anti-submarine
warfare, anti-shipping and anti-surface ship warfare, patrol and general
reconnaissance, and for the defence of naval bases and coastlines. They
are capable of operating in relatively shallow water.
Table 8.1 Characteris-
Characteristics
tics of the Varshavyanka-
class Submarine Crew 52–57 persons
Length 73.8 metres
Width 9.9 metres
Surface displacement 2,300–2,350 tons
Draft 6.2 metres
Diving Depth 300–350 metres
Surface speed/range 20 knots/9,650 km
Under water speed/range 5 km per hour/700 km
Endurance 45 days
Range 9650 km
Armament Torpedoes, mines, missiles
The Varshavyanka-class submarine is equipped with six 533 mm for-

ward tubes capable of firing torpedoes or missiles and/or laying mines.
The Varshavyanka-class submarine can carry 18 torpedoes (six torpedoes
stored in tubes and 12 on racks) or 24 mines (two in each tube and 12
on racks). Two torpedo tubes are designed for firing remote-controlled
torpedoes with very high accuracy. Vietnam’s subs reportedly will be
fitted with new heavyweight torpedoes such as the 53–65 or TEST 76
weapons (Table 8.2).
The Varshavyanka-class submarine can carry four or more missiles.
According to Oleg Azizov, representative of Rosoboronexport, speak-
ing in July 2011, Vietnam’s Varshavyanka-class submarines will be
equipped with the Novator Klub-S (SS-N 27) cruise missiles.7 These
missiles can be launched underwater from torpedo tubes and have a
range of 300 km. Media reports confirmed that all of Vietnam’s four
Varshavyanka-class submarines are armed with Klub-S missiles. It is not
clear whether these submarines are equipped with the 3 M-54E Klub-S
(220 km range) or the 3 M-54E1 (range 300 km) anti-ship missiles. In
May 2015, it was reported that Vietnam had taken delivery of twenty-
eight of fifty anti-ship and land-attack missiles on order from Russia,
Table 8.2 Vietnam’s Submarine Brigade 189
Number Name Status
HQ 182 Ha Noi Construction commenced 24 August 2010. Launched on

28 August 2012. Delivered to Vietnam on 31 December
2013. Commissioned on April 2014.
HQ 183 Ho Chi Minh Launched on 28 December 2012. Commenced sea trials
on 28 April 2013. Delivered to Vietnam on 19 March
2014. Commissioned on April 2014.
HQ 184 Hai Phong Construction began on 14 March 2012. Launched on
August 2013. Delivered to Vietnam on 28 January 2015.
Commissioned on 1 August 2015.
HQ 185 Khanh Hoa Launched on 28 March 2014. Sea trials in January 2015.
Delivered to Vietnam on 30 June 2015. Commissioned on
1 August 2015.
HQ 186 Da Nang Launched on 28 December 2014. Completed sea trials
in June–September 2015. Delivered to Vietnam on 2
February 2016.
HQ 187 Ba Ria-Vung Tau Construction began on 28 May 2014. Launched on 28
September 2015. Scheduled for delivery early 2017.
114 C.A. Thayer
including the 3 M-14E Klub (range 300 km) land-attack precision strike

missile.
In 2015, defence analysts speculated that the final two submarines on
order from Russia might be configured to embark Special Forces.
The Varshavyanka-class submarine is also armed with MANPADS
Strela-3 (man portable air defence missile system).
Ever since Vietnam took delivery of its first Russian-built enhanced
Kilo or Varshavyanka-class conventional submarines, analysts have dif-
fered over how quickly Vietnam could absorb these weapons into its navy
and create a credible deterrent force to China. For example, Admiral
James Goldrick (Royal Australian Navy retired) noted ‘(t)he Vietnamese
are trying to do something very quickly that no navy in recent times has
managed successfully on such a scale from such a limited base… The new
boats may have significant numbers of Russians on board for years to
come’.8
The assessment of whether or not Vietnam can absorb submarines
and create a credible deterrent is now becoming clearer with reports by
diplomatic observers that Vietnam’s submarines are undertaking patrols
along Vietnam’s coast. More recent press accounts indicate that the
Vietnamese submarines have commenced patrols without their Russian
advisers. In addition, Vietnamese crews are currently undergoing training
at India’s INS Satavahana submarine centre in undersea warfare doc-
trine and tactics.
The views of defence analysts range from sceptical to cautiously opti-
mistic about Vietnam’s ability to develop an effective counter-interven-
tion or area denial naval force to deter China in Vietnam’s maritime
domain. Lyle Goldstein, a professor at the US Naval War College, for
example, has written an analysis of Chinese assessments of Vietnamese
military capabilities. Goldstein notes that Chinese defence planners mon-
itor Vietnam’s modernisation programmes ‘extremely closely’ and have
‘ample respect… for Vietnam overall’, including the Vietnamese Air
Force.9
With regard to Vietnam’s Varshavyanka-class submarines, Goldstein
notes that they can ‘deliver lethal blows with either torpedoes or anti-
ship cruise missiles’. Nonetheless, Goldstein reports that Chinese analysts
have identified two major weaknesses in Vietnam’s military strategy: lack
of major experience in operating complex weapons systems and ‘sur-
veillance, targeting and battle management’. These weaknesses have led
Chinese defence officials to conclude ‘that China could prevail in any
armed clash’ with Vietnam. Goldstein concludes that ‘Vietnam’s most

promising strategy versus China is the hope that it might have suffi-
cient forces for deterrence, while simultaneously pursuing diplomacy to
resolve disputes’.
Zhang Baohui, a security specialist at Lingnan University in Hong
Kong, reports that China’s military planners are concerned about
Vietnam’s submarines. ‘On a theoretical level’, he notes, ‘the Vietnamese
are at the point where they could put them to combat use’.10
Brian Benedictus offers cautiously optimistic evaluations of Vietnam’s
counter-intervention strategy. Benedictus reviews in detail the capa-
bilities of Vietnam’s Varshavyanka-class submarines. He concludes that
these acquisitions ‘potentially allow it more options in its power pro-
jection towards claims in the South China Sea’. In his view, Vietnam’s
Varshavyanka-class submarines ‘have the potential to disrupt enemy ships
in a military conflict in a variety of ways’, particularly as the People’s
Liberation Army Navy is weak in anti-submarine warfare.
Finally, Benedictus concludes by stressing the importance of the geo-
graphic factor. He argues:
Vietnam is in close proximity to China’s Hainan Province, the island which

is harbor to the PLAN Southern Pacific Fleet. It is worrisome enough for
Beijing to consider that harbored vessels could be easy prey to subma-
rines off the island’s shores, if conflict took place; the prospect of Vietnam
someday having land-attack capabilities integrated into its submarine fleet
would be a serious cause of concern.11
Collin Koh, from the S. Rajaratnam School of International Studies in

Singapore, argues that Vietnam will use its submarines in area denial
operations off its coast and in the Spratly Islands once they become fully
operational. According to Koh:
Sea denial means creating a psychological deterrent by making sure a

stronger naval rival never really knows where your subs might be. It is
classic asymmetric warfare utilized by the weak against the strong and
something I think the Vietnamese understand very well. The question is
whether they can perfect it in the underwater dimension.12
116 C.A. Thayer
Siemon Wezeman, from the Stockholm International Peace Research

Institute, goes further to argue that from the Chinese point of view
Vietnam’s deterrence is already a reality. According to Wezeman:
The Vietnamese have changed the whole scenario – they already have two
submarines, they have the crews and they appear to have the weapons and
their capabilities and experience will be growing from this point. From the
point of view of Chinese assumptions, the Vietnamese deterrent is already
at a point where it must be very real.13
One Vietnamese strategic analyst interviewed by the author argued for

a strategy of ‘mutually assured destruction’.14 This strategy would only
apply to a situation where relations between China and Vietnam deterio-
rated to the point of armed conflict. Under this strategy, if armed con-
flict broke out, Vietnam would give priority to targeting Chinese flagged
merchant shipping and oil containers ships operating in the southern
extremity of the South China Sea. The Vietnamese strategists argue that
the aim of this strategy is not to defeat China but to inflict sufficient
damage and psychological uncertainty to cause Lloyd’s insurance rates to
skyrocket and for foreign investors to panic and take flight.
Conclusion
The commissioning of the first four of six Varshavyanka-class subma-
rines into the VPA Navy marks a major milestone in the development of
Vietnam’s national defence capabilities. Vietnam is now a member of an
elite group of Southeast Asian nations that deploy submarines, including
Indonesia, Malaysia and Singapore. In order to turn the Varshavyanka-
class submarines into an effective naval force, Vietnam will have to make
great efforts to develop an effective doctrine for their use, recruit sail-
ors to crew them and absorb new military technology for operating and
maintaining the submarines and their weapons systems.
Vietnam’s military can now operate in three dimensions—on land,
in the air and under the sea. The Varshavyanka-class submarine is
known for its ability to elude detection. In 2017, when all six subma-
rines are operational, they will add a major capability in Vietnam’s abil-
ity to develop anti-access/area denial capabilities against any country
seeking to enter Vietnamese waters with hostile intent. In addition, the
Varshavyanka-class submarines will add a potent strike capability with

their anti-ship and land-attack cruise missiles.
Vietnam’s emerging submarine fleet will be based at Cam Ranh Bay.
The ability of these submarines to deploy stealthily will be put at risk if
China permanently stations anti-submarine warfare aircraft on Fiery
Cross Reef where a 3-km-long runway has been constructed.
When all of Vietnam’s current and future arms acquisitions are taken
into account, it is evident that Vietnam has taken major steps to develop
a robust capacity to resist maritime intervention by a hostile power. This
has taken the form of developing a counter-intervention strategy that
integrates shore-based artillery and missile systems; Su-30 multirole jet
fighters; fast attack craft, corvettes and frigates armed with ship-to-ship
missiles; and Varshavyanka-class submarines. These weapon systems
should enable Vietnam to make it extremely costly for China to conduct
maritime operations within a 200-300 nautical miles band of water along
Vietnam’s coast from the Vietnam–China border in the northeast to
around Da Nang in central Vietnam if not further south.15 Additionally,
Vietnam also has the capacity to strike China’s major naval base near
Sanya on Hainan Island and military facilities on Woody Island.
Notes
1. It was initially reported the submarines were to be purchased by
Venezuela but Rosoboronexport broke contract on April 18.
2. According to analysts, the cost indicates that the Varshavyanka-class sub-
marines will not have the air independent propulsion (AIP) system.
3. ‘RE: Vietnam’s Navy and force modernization’, email to the author, 18
December 2009.
4. Southeast Asia Times, 29 March 2012.
5. Centre for Strategic and Technological Analysis quoted by RIA Novosti, 3
June 2010. Earlier, it was reported that the total cost for the submarines,
armaments, equipment and services was US $4 billion; RIA Novosti, 23
March 2010.
6. Tim Fish, Jane’s Navy International, 9 June 2012.
7. The Klub-S (also Club-S) missile has a range of 300 km with a 400 kg
warhead. The missile initially flies at subsonic speed but the warhead sep-
arates when it approaches its target flying at 5–10 m above the surface
and accelerates to three times the speed of sound.
8. James Goldrick, ‘Vietnam’s Submarine Fleet’, United States Naval
Institute Proceedings, 139(9), September 2013.
118 C.A. Thayer
9. Jane Perlez, ‘Q. and A.: Lyle Goldstein on China and the Vietnamese
Military’, The New York Times, 5 July 2014.
10. Greg Torode, ‘Vietnam building deterrent against China in disputed seas
with submarines’, Reuters, 7 September 2014.
11. Brian Benedictus, ‘The Wildcard: Vietnam’s Naval Modernization and Its
Role in the South China Sea’, Warm Oolong Tea, 11 February 2013.
12. Torode, ‘Vietnam building deterrent against China in disputed seas with
submarines’.
13. Quoted in Torode, ‘Vietnam building deterrent against China in disputed
seas with submarines’.
14. Carl Thayer, ‘Vietnam Mulling New Strategies to Deter China’, The
Diplomat, 28 May 2014. http://thediplomat.com/2014/05/vietnam-
mulling-new-strategies-to-deter-china/.
15. Thayer, ‘Vietnam Mulling New Strategies to Deter China’.
Author Biography
Carl Thayer is Emeritus Professor of Politics. He is currently Director of Thayer
Consultancy, a small business registered in Australia in 2002 that provides politi-
cal analysis of current regional security issues and other research support to
selected clients; Southeast Asia Defence and Security columnist for The Diplomat
(2013-); Consultant, Gerson Lehrman Group (2012-); Editorial Consultant for
Radio Free Asia (2014-); External Expert Contributor, Oxford Analytica; Senior
Analyst, Wikistrat (2015-); Global Adjunct Faculty member, Ohio University
(2009-); Research Associate, ASEAN Studies Center, School of International
Service, American University (March 2011-); Adjunct Fellow, International
Association for Counterterrorism and Security Professionals, Centre for Security
Studies, Stratad Malaysia (August 2013-); and Member of the International
Advisory Board of Contemporary Southeast Asia (2008-), International Journal
of China Studies (2014-), Journal for Social Sciences and Humanities (2015-); and
Contemporary Chinese Political Economy and Strategic Relations: An International
Journal.
CHAPTER 9
Conclusion
Geoffrey Till and Collin Koh Swee Lean
Abstract  The editors of this volume will seek to draw together the

threads of the differing arguments presented in this volume. Will the
appearance of more submarines in this volatile area prove as dangerous as
is often said? To what extent does it represent a “game-changer” within
the regional process of naval modernization not just for Southeast Asia
but for the whole of the Indo-Pacific region, given rising tensions in the
South and East China seas and strategic competition between China and
the United States?
Keywords  Submarines · Southeast Asia · Proliferation

South China Sea · Acquisition challenges and consequences
G. Till (*) 
Defence Studies Department, King’s College London,
Swindon, Wiltshire, UK
C. Koh Swee Lean 
Institute of Defence and Strategic Studies, S. Rajaratnam School
of International Studies (RSIS), Blk S4 Nanyang Avenue,
Singapore 639798, Singapore

120 G. TILL AND C. KOH SWEE LEAN
In this book, we have sought not just to explore whether a naval arms
race in submarines is developing in the Asia-Pacific region, but to analyse
the motivations driving those acquisitions and the prospects and chal-
lenges that each navy faces in building a submarine capability.
We have also concentrated on the small and medium navies in the
region. The reason for this specific interest is not just because small and
medium navies have in the main been overshadowed by major players
such as China and the USA in the existing literature, but also because
these “lesser players” by dint of having access to fewer resources for the
most part do face unique circumstances in their naval force development,
especially in the subsurface areas.
We began with several questions:
• Why Submarines? Why are submarines proliferating at the rate

they are especially amongst navies of the Asia-Pacific region? Is it
always a secure and considered judgment that their future opera-
tional advantages will outweigh the dangers and the resource and
organizational challenges that will confront them?
• What are the likely problems? How do these countries intend
to meet these challenges? To what extent will the budgetary and
political support required for the acquisition or expansion of these
demanding capabilities prove forthcoming? And finally, how will the
all-important issue of the impact of submarine acquisition on the
development of the domestic economy be handled and the relation-
ship with foreign suppliers be maintained?
• What are the likely consequences of submarine acquisition?
What will be the consequences of the acquisition or development
of submarine capacities for the peace and stability of the region?
Will it make the region more secure and stable as the strategic
gaps between the great and small are narrowed (if they are) or will
it increase suspicion and risks of misperceptions and so threaten
to destabilize an area already subject to a worrying range of ten-
sions? And what is likely to be the reaction to all this of the great
navies from further afield, the Chinese, Americans, Russians and the
Japanese in particular, but others too?
Previous chapters have shown not just the diversity of the area and of
the approach that the region’s navies have taken to submarine acquisition
but have also revealed a variety of different views and interpretations. In
this concluding chapter, we seek to review all these issues
9 CONCLUSION 121
Why Submarines?
It is clear that being in such a diverse region as the Asia-Pacific, each
country independently takes account of its unique circumstances when it
comes to threat perceptions, naval force developmental priorities and no
less important—economic or fiscal capacities. This is a point often missed
by some keen watchers of Asia-Pacific geopolitics and military dynamics.
Media commentaries in particular have tended to draw over-simple link-
ages between submarine proliferation and interstate maritime disputes.
Some sceptics have also questioned the utility of submarines and
hence the actual motives of such purchases, for example, pinning their
acquisition down merely to a matter of national prestige. And indeed
there may have been some evidence for this, and for other frivo-
lous purposes. Media reporting has also linked such purchases to cor-
rupt practices, the saga of Malaysia’s submarine deal with the French,
overshadowed by the controversial case surrounding the murder of
a Mongolian woman, being a case in point. As Dzirhan Mahadzir has
pointed out in his chapter, the ghost of this controversy continues to
haunt the Malaysian Government, such that public perceptions still have
significant bearing on the country’s naval modernization programmes.1
But as the previous chapters have also shown, it is clear that most
if not all these countries do have their own purposeful game plans for
building subsurface capabilities. Their submarine acquisition programs
ought not to be dismissed as ill-conceived projects for illusory purposes
of prestige. Australia and Japan, for instance, each has a long-term stra-
tegic plan to develop their naval capabilities, including a significant sub-
surface capability. They happened to be not just some of the Asia-Pacific
region’s longstanding submarine operators, but also some of the world’s
most predisposed—in both fiscal, operational and technological terms—
to sustain this capacity. Hence, there is not just a strategic imperative to
possess submarines, but also a historical one to maintain them as James
Goldrick and Yoji Koda have pointed out.
The same applies to Indonesia as Ristian Atriandi Supriyanto high-
lighted in his chapter, for it operated up to 12 Soviet Whiskey class sub-
marines in the 1960s. But for the most the countries in Southeast Asia,
subsurface warfare has traditionally been a gap in their respective quests
for balanced naval capabilities. Despite ambitions that dated as far back
as the Cold War, their submarine programs only came to fruition from
the 1990s onwards. This did not mean that these countries do not
have a “game plan” for submarine acquisition or that these were simply
“prestige buys” with little operational or strategic utility. As Carl Thayer
showed in his paper, Vietnam has a well-defined purpose for its under-
sea ambitions. The six Kilo class boats may be heavily taxing Hanoi’s
resource capacities at a time when the country needs to modernize much
more than just the navy, but the investment is intended to pay off for
the country’s long-term struggle against its ever-growing naval asym-
metry with China—its possible adversary in the South China Sea. That
Vietnam only managed to purchase submarines recently is to be attrib-
uted more to its past inability to finance such a costly purchase than any
lack of desire. The fact that it acquired six boats at one go is testament
to its determination to possess a fully functional subsurface fleet, not
just a token one, in order to deliver credible deterrence. Like Vietnam,
Singapore has also conducted an incremental approach to building a sub-
surface capability—first getting either low-capability (very rudimentary
Yugo class midget submarines in Vietnam’s case) or second-hand boats
(Sjöormen class coastal submarines in Singapore’s case), before moving
onto newer, more capable boats.
The motivations behind submarine proliferation are diverse and com-
plex, typically comprising a confluence of strategic and domestic factors.
Yet if there is any commonality, it is most likely the widespread agree-
ment about the utility of submarines—even if it is theoretical—in times
of peace and war. The very characteristics of a submarine—stealthy, being
able to operate autonomously and having the proven ability to deliver
significantly/ disproportionate operational effect—do endear this particu-
lar capability to countries faced with challenging strategic circumstances.
Of course, there are likely to be advances in ASW technology and
procedures. Big data approaches may transform the sensor situation
and underwater drones (deployed either by the submarine or its air
and surface hunters) may likewise shift the offence/defence balance. In
an increasingly networked maritime domain, we already have “bistatic
sonar” procedures where the returning “ping” of a sonar signal goes to
a different and possibly much closer platform from the originating one
and this too could make life more difficult for the submarine. And there
is also the fact the many would regard the submarine itself as the chief
ASW platform provided it has sufficient means of detection and strike.
In this case, one country’s investment in submarines might simply be
overwhelmed by another country’s better ones—thereby defeating its sea
denial aspirations. Nonetheless, it is clear that the submarine remains an
9 CONCLUSION 123
attractive proposition in an Asia-Pacific marine environment that is politi-

cally and operationally conducive for subsurface operations.
The small and medium navies of the Asia-pacific region are also oper-
ating in an area the dynamics of which are increasingly dominated by the
big two—China and the USA. Although the increase is size and capabil-
ity of the submarine forces of the PLA Navy are both frequently exag-
gerated, and the expansion of its submarine fleet has been steady rather
than transformational, it is clearly a question of significant expansion.
This is not the case for the US Navy which now deploys “just” 52 Los
Angeles, Seawolf and Virginia class SSNs and four Ohio class guided mis-
sile submarines, many of which are not, of course, present in the Pacific
theatre. This force, it has recently been claimed, performs just 62% of
the aims of the various combatant commanders’ operational demands. It
is moreover due to shrink still further to about 41 by 2029, by which
time the Ohio class submarines will also have been decommissioned,
with the consequent loss of some 60% of the US Navy’s subsurface mis-
sile capability.2 Although the USA will doubtless seek to mitigate this
quite bleak prognosis, and US submarines still retain a very significant
qualitative advantage, the fact remains that the Western Pacific is getting
much more “uncommanded” than it was. In this situation, the region’s
other naval players have seriously to consider their options and subma-
rines will certainly continue to offer them opportunities for achieving
the kind of strategic effects they consider that they need, whether that is
general deterrence, narrow homeland defence or simply the provision of
a greater degree of decisional autonomy.
But, What Are the Challenges?

Obviously, for the small and medium navies of the Asia-Pacific region,
the submarine is far from being just a pretty toy to boast of during fleet
reviews or open days. The inherent characteristics of the submarine give
its owner certain highly valued advantages in times of peace and war. For
small navies in particular, submarines are essentially “capital assets” that
serve as force multipliers against stronger adversaries. Vietnam’s case for
submarines is obvious. For Indonesia, even if short of the optimal eight
to 12 boats it desires to have,3 even having a handful of boats may well
suffice for its strategic and operational purposes. In fact, even maintain-
ing a token force of two West German-built Type-209s helps the coun-
try maintain its institutional capacity for undersea warfare, rather than to
lose it over time and then having to rebuild it from scratch when the
need arises. Thailand, which was the first Southeast Asian submarine
operator prior to 1945, learned the hard lessons from this after it decom-
missioned its last Japanese-built boats. Expanding a cadre force is much
easier than completely reconstituting it.
Countries which have been operating and maintaining a submarine
capability also have clear incentives to try to sustain it for as long as they
can. The better-financed navies, which also may have readier access to the
requisite technologies either through indigenous development or from
reliable foreign sources, would potentially stand a much higher chance of
sustaining an effective submarine capacity that keeps in pace with times.
They may also be better predisposed to embark on their own innovative
processes to derive solutions catering for their navies’ specific operational
requirements. Japan’s shift from lead-acid batteries and air-independent
propulsion to Lithium-ion batteries for their new and most plausible
future classes of submarines is an example of this. This aspect adds to
the already impressive repertoire of submarine-related technologies that
Japan’s domestic industries are already producing—combat manage-
ment systems, sonars, propulsion and propellers, to name just a few. Even
Australia, despite being a relatively newer entrant into the indigenous
submarine industrial game, can boast of having built Swedish-design sub-
marines in its local yards. The recent deal with France for 12 Barracuda
Shortfin Block-1A submarines—adding to a pre-existing technological
base, in collaboration with the Americans, for such associated systems
as combat systems, sonars and the Mark-48 ADCAP heavyweight torpe-
does—should sustain this capacity for the longer term.
This comparatively rosy picture, even given the inherent challenges
involved, does not apply to the less well-endowed countries which, for
the most part, have to rely on foreign suppliers, which thereby has a sig-
nificant implication for their ability to sustain their tiny submarine fleets.
But it is also clear that while costs have always been a primary limiter
of submarine ambitions, there are always available solutions out there to
explore. For example, instead of refurbishing their Type-209s in German
yards, which would be more expensive due to the transportation distance
involved amongst other tangible factors, the Indonesians sent their boats
to South Korea for overhaul. And this certainly constitutes one of the
reasons why Jakarta opted for South Korean-built SS209 Chang Bogo
class submarines—thereby getting not only “more bang for the buck”
but also exploiting the existing institutional linkages between client and
9 CONCLUSION 125
supplier. The plan to build the third Chang Bogo in its own PT-PAL yard
is not without its teething problems, something which again exposes the
difficulties faced by small navies which do not have ready access to all
the necessary technologies and are maybe less able to enjoy economies of
scale due to their tiny procurements.
Perhaps for this reason, some other countries are more cautious about
building their own. Vietnam, for example, purchased Kilo boats all built
in Russia and equipped with Russian technologies and consequently
resigned itself to total reliance on this just one supplier. Purchasing
more to justify economies of scale to kick-start indigenization remains
a faraway ambition. The same goes for Malaysia—there are simply no
funds available to purchase more than the pair of Scorpene class boats,
let alone plan to build submarines locally. Nonetheless, this does not
preclude countries from exploring niche areas of submarine self-reli-
ance. Singapore, for example, would almost certainly not take a leap
into building its own submarines, but it remains interested in acquiring
a modicum of self-reliance in niche areas. Singapore’s cooperation with
Germany’s Atlas Elektronik to develop submarine combat systems is a
significant example of this.
One thing is clear: despite the challenges faced in acquiring, operat-
ing and sustaining submarine capabilities, Asia-Pacific countries con-
tinue to be keen to do so. What facilitates or fuels these aspirations has
been, amongst others, an international arms market that has increasingly
become “flatter”—in no small part attributed to the emergence of so-
called second-tier or new suppliers. This not only expands the range of
options, but also makes this “buyer’s market” even more competitive—
to the benefit of the submarine aspirant. This is well illustrated by, as
mentioned earlier, Indonesia’s decision to contract a South Korean
shipbuilder for its latest submarine purchases. And so was the case with
Thailand when it recently revived the decision—to proceed with pur-
chasing three S-26T submarines, the export-oriented model of the Type-
039A, from China.4
But Problems Persist

Clearly, there are strong strategic motivations, underpinned by histori-
cal experience for some to build submarine capacities in the Asia-Pacific.
The medium navies—represented in this volume by the case studies of
Australia and Japan—would be in a much better position to acquire
and sustain a much more sizeable and possibly more effective subma-
rine capability. They would also be better poised to embark on their own
innovative technological solutions that meet specific undersea mission
requirements.
Small navies typical of those in Southeast Asia tend to muster rela-
tively tiny submarine forces which thereby bring into question their abil-
ity to sustain these capacities. However, as seen in the case of Indonesia,
even with a small handful of submarines it is possible to still maintain
at least a “fleet in being” peacetime posture. Notwithstanding doubts
about their actual operational capacity, this tiny force could not simply
be ignored by any would-be adversary. One recalls not just the Australian
worries of Indonesian submarine activities which might potentially inter-
fere with INTERFET movements in 2000, but also the obvious worries
displayed by such a superpower navy as the US Navy about Libya’s old
Soviet Foxtrot class boats, despite their poor state of material readiness,
especially during the episodic confrontations with the Qaddafi regime in
the 1980s.5 Submarine acquisition by the small navies of Southeast Asia
can be seen in the same light: notwithstanding the small size of their
undersea fleets, it remains a worthwhile peacetime investment that could
provide enormous deterrent effect especially in times of crisis.
But there are also clear caveats to this. While there is indeed evidence
that the mere existence of a submarine capacity may have significant stra-
tegic effect in conditioning an adversary’s perceptions and willingness
to take risk, many navies remain wary of the wisdom of relying on such
modest “existential” conceptions of deterrence. Real and reliable deter-
rence, they say, demands more than this. It requires credible and dem-
onstrated capacity, otherwise there must always be the concern that an
adversary allowed to conclude that he had the superior capacity might
be tempted to think he could easily manage the risk of challenging the
apparently weaker side. Just as on the surface or in the air above it, supe-
rior forces (whether in numbers of quality) can sweep aside the forces of
sea denial, impose sea control and enjoy all the strategic benefits it offers.
To prevent such perceptions arising at the strategic level, one’s subma-
rine force has not merely to exist, but to be tactically and operationally
effective, even if not aspiring to realistic expectations of ultimate victory.
With such expanded conceptions of deterrence, the aim will be to dem-
onstrate to adversary that the risks and costs of aggression are likely to
outweigh the benefits.
9 CONCLUSION 127
This was certainly the assumption of both sides in the Cold War in
the conduct of their subsurface encounters. For that reason, they both
invested heavily and continuously in a competition to have the best mix
of submarine attributes in their fleets—quietness and stealth, propulsion
and endurance, striking power, endurance, integration with the rest of
the fleet and so forth.6 This led inexorably to their development of the
nuclear-propelled submarine—the operational advantage of which over
its diesel-propelled equivalent was and remains very significant in many
(but not all) ways. This was extremely demanding technologically and
costs a great deal of more money. This is as true now as it was then.
Britain’s Astute class SSNs, for example, cost between 1.6 billion sterling
and £ 747 million (the more you build, the cheaper they get) compared,
say to the £ 260 million individual cost of a very capable German Type
212A SSK. Other than, possibly Australia or Japan, none of the small
and medium navies of the region can realistically aspire to this in the
foreseeable future, for this reason.
Even so, those smaller navies of the Asia-Pacific still confront the una-
voidable requirement for continued improvement in their submarine
capability if they aspire to anything more than mere existential deter-
rence. To be a serious player in this world of subsurface deterrence will
require serious and continuous investment for the foreseeable future, and
it is not clear that many of the countries in the region have either the
appetite or the wherewithal to engage in this.
Perhaps even worse from their point of view, there can be no doubt
that submarine technology is far from settled. The submarine’s future
role and power relative to the surface fleet and its air support are quite
uncertain, particularly with regard to the development of unmanned
underwater vehicles, deployed from ships, aircraft and submarines them-
selves. The historic role of the submarine as a “lonely hunter” operating
more or less independently of the surface fleet was never completely true
but is much more doubtful now, given the potential of networking and
the communications revolution. Neither, given this, can we be sure of
the future balance in tactical and operational effectiveness between the
submarine and anti-submarine forces. What we can be sure of, however,
is first that staying in constructive touch with all the potential advances
that technology offers will be challenging and expensive especially for
navies with limited resources and secondly that the strategic conse-
quences of not doing so could be severe.
Nowhere is this truer than in investment in the delivery of what

accountants like to call the human capital in subsurface operations. These
constraints are not unique to small navies, for even their medium coun-
terparts also face such issues. Human capital is arguably a major—in
many ways the major precondition for subsurface effectiveness. As Sam
Bateman pointed out in his chapter, the Royal Australian Navy had to
offer generous bonuses to retain and recruit submariners. If life at sea
is already tough enough for the common sailor, how much more is this
true for a submariner confined within a cylindrical tube and unable to see
the daylight for days, weeks or even months at a stretch? Training needs
to be lengthy and especially rigorous as well, since mistakes in a subma-
rine can easily be fatal.
Naturally, as the Asia-Pacific continues to flourish economically navies
like all the military services have to compete with non-military, often cor-
porate, sectors for educated and skilled human capital—a resource that
is also essential for the upkeep of a professional submarine force. Besides
having to grapple with the potential shortfall of new, capable submarine
recruits, and to retain skilled existing human capital —both submarine
crews and their shore-based technical personnel—a number of these
navies will have to face the problem of sustaining an effective program
to maintain the quality of their human capital. It is one thing to purchase
the hardware, quite another to support its continuous upkeep and life
cycle processes. This includes giving submariners ample sea time to hone
their skills—not just for combat training purposes but also to maintain a
reasonable level of proficiency in safe underwater navigation. Dispatching
submarines to sea for training cruises is costly, given the necessary life
cycle maintenance, repairs and overhaul processes with the attendant risk
in smaller submarine forces of not having operational boats at certain
periods of time. Countries such as Singapore and Vietnam, for example,
have compensated for this, in view of their small fleets, with on-shore
solutions such as training simulators. But nothing beats getting the
submariners out at sea, training under realistic conditions and getting
acquainted intimately with the typical marine operating environment.
In submarines, people learn most effectively “on the job”. For this, the
capacity for continuous deployment is invaluable and its absence a major
impediment.
Finally, it is often overlooked that an effective submarine force “pack-
age” does not just comprise the boats, the crew and technical personnel,
combat systems and supporting infrastructures but also the necessary
9 CONCLUSION 129
submarine emergency response capacity. This is an area that has often

been neglected in the region’s quest for a subsurface capacity. Again,
medium navies are better placed in this aspect of their development
because of their better financial and technical resources. Australia and
Japan muster well-developed submarine emergency response capabilities
but this is not commonly found amongst the small navies of Southeast
Asia. Of those which operate submarines, only Singapore—and to a lesser
extent Malaysia—can be deemed to possess a comprehensive submarine
emergency response capability. Vietnam does not. And it is puzzling that
despite being a longstanding submarine operator, Indonesia seems to have
no such equivalent capability. While countries try to rectify this shortfall
by signing bilateral pacts with those that do possess such capacities,7 it
is hard to ignore the fact that submarine emergency response capabilities
are not uniformly distributed throughout the colossal expanse of the Asia-
Pacific region—dense in Northeast Asia and Australia, but much less so in
Southeast Asia where those capabilities would most plausibly be required.
For all the challenges to be faced in acquiring them, submarines, by
dint of their inherent characteristics, look set to remain an attractive
proposition in the Asia-Pacific region’s naval force development pro-
cesses. In the coming years, the region will most likely see not just the
expansion of existing fleets but also, the emergence of new players. The
submarines they acquire may well be modern and highly capable, pos-
sibly equipped with some of the world’s newly emergent underwater
“innovations” such as unmanned drones for remote, off-board opera-
tions. The submarine fraternity in the region—just like all their equiv-
alents worldwide—will continue to be an elite, privileged force with
greater levels of prestige compared to their brethren in the surface fleet.
That being said, however, medium and small navies of the Asia-Pacific
will continue to face problems in matching commitments to resources
as they seek to establish or sustain an effective subsurface capacity. Small
navies will almost certainly naturally find themselves in a more tenuous
position as they commonly operate tiny submarine fleets.
Arguably the most crucial requirement is that the acquisition of a
functional submarine capacity needs to be viewed as a whole—compris-
ing not just the hardware and software (boats, combat systems and sup-
porting infrastructures) but also “wetware” (i.e. the human capital), the
development of which needs careful planning. New and future subma-
rine capability development plans need to make the training and career
requirements of its crews and supporting personnel a key element. This
is not just about sustaining an effective undersea fighting force, but also
one that will in peacetime perform professionally and in a safe, effective
manner. This is especially pertinent in times of crises, when tension runs
high. In such an operational context, the destabilizing effects of a sub-
marine’s action may be high since it would find it very difficult to cali-
brate its use of force, given that its first firing shot is most likely going
to disable or kill the target and therefore provoke a strong response. It is
hard to exaggerate the critical importance of human capital development
in such specialized, elite formations as a subsurface fighting arm, and the
challenges to be confronted in delivering it.
…. and with What Consequences?

At this stage, we do not wish to resurrect the whole debate about
whether a subsurface naval arms race is breaking out in the Asia-Pacific
in general and in Southeast Asia in particular.8 Instead, we will close with
just a few observations about the possible consequences of submarine
acquisition for the region’s peace and stability.
As has been remarked by countless authorities before, it is less the
inherent qualities of a weapon that makes it dangerous or not, than the
way it is used.9 Here, the exact motivations behind submarine acquisition
are critical and if this is for general purposes of deterrence rather than a
reflection of the infamous “general purposes of greatness” way of think-
ing,10 what those conceptions of deterrence actually are may make all
the difference. Existential deterrence of the sort discussed earlier may be
much less destabilizing and escalatory than more muscular conceptions
of deterrence, for in this framework, submarine usage may well not be
particularly assertive. Occasional deployments to demonstrate continued
seaworthiness and operational potential may be all that is required. With
this comes only modest prospects of collisions and escalatory incidents,
although paradoxically a possible enhanced prospect of accident due to
comparative lack of practice.
If, on the other hand, something more positive in the way of subsur-
face deterrence is considered necessary, then the consequences for local
peace and stability could be more problematic. During the Cold War, for
example, as both sides developed their submarine capacities, they sought
to prove those capacities to themselves, and sometime even to the oppo-
sition when considered necessary. British and US submariners progressed
from the occasional deployment “against” the Soviet navy in order to
9 CONCLUSION 131
gain as much information as they could about its operational capabili-

ties and procedures, and then to regular efforts to locate and mark every
Soviet submarine they could. In order to measure themselves against the
opposition, it was not enough to “trail” an adversary’s submarines from
15 miles or so without inspiring counter-detection but to move in close
to within a few thousand yards to achieve a “fire-control solution” and
even then to carry out a simulated attack on an unknowing adversary.
This aspect of the deep Cold War was extraordinarily challenging, pro-
viding the best possible source of intelligence about the other side, an
ideal form of training, and was something that provided confidence that
one still retained the operational edge despite the advances made by the
opposition.11 Even so, it was basically very dangerous. Close approaches
were commonplace, underwater collisions far from unknown. That these
did not lead to a major incident sparking a conflict is testimony to the
sheer professionalism of both sides in this potentially deadly game and
even more to everyone’s knowledge of what was ultimately at stake.
In this way, whether a particular weapon or practice was escalatory
and destabilising or not depended on larger questions of the motivation
behind the policy of both sides. The dangerousness of submarine activ-
ity in other words can be a consequence of the general state of the rela-
tions between the protagonists as much as of the inherently destabilising
characteristics of the submarine itself. From this perspective in the case,
say, of Southeast Asia whether or not the general submarine acquisition
process that is clearly taking place imperils the region’s peace and stabil-
ity is likely to be a reflection of the existing strategic situation in the area
rather than just as something that profoundly alters it.
Even so those inherent submarine characteristics make it seem wise for
all those involved to envision and anticipate a corresponding increase in
operational and strategic risk. Accordingly, it may also be time for the
region to seriously consider concrete measures to prevent and mitigate
subsurface incidents—similar to the “Whiskey on the Rocks” episode
when a Soviet Whiskey boat S-363 was found beached on Swedish shores
close to a major naval facility in 1981, thereafter sparking diplomatic
uproar. This particular risk is very real in such geopolitically volatile
regions as the Asia-Pacific, where the maritime flashpoints seem to pre-
sent ideal opportunities for such occurrences. If coastguards, aerial and
surface naval/military forces can feud in those numerous standoffs seen
so far to be happening in the East and South China Seas for instance, it
may seem only become a matter of time before submarines become more
actively involved as “backup” or a form of “recessed deterrence”—essen-

tially presenting greater range of escalatory options for the protagonists.
Were this to happen, those attendant risks of inadvertent use of force
would clearly increase. The time is, therefore, ripe for preventive meas-
ures, against such underwater practices and incidents along with greater
levels of cooperation amongst the Asia-Pacific navies—including between
those operating submarines and those which do not.
Nor should the singular qualities of the submarine lead analysts or
practitioners to think about them to the extent of neglecting everything
else that is happening at sea. Maritime operations in this increasingly net-
worked world are very much a holistic affair. Submarines are affected by
developments in the surface fleet, in maritime aviation, and indeed by the
many of the commercial aspects of sea-usage. In the last analysis, there-
fore, we need to remember that submarines are best considered not as
sui generis but instead as just a part of the general dynamics of maritime
operations as a whole.
Notes
1. 101 East, Al Jazeera’s award-winning Asia-Pacific program, produced in
late 2015 a detailed report into the sensational murder of the Mongolian
woman, Altantuya Shaariibuu in October 2006 over alleged bribery of
Malaysian officials by French companies to secure the submarine contract.
This report provoked a vigorous response from Kuala Lumpur. This hap-
pened while Prime Minister Datuk Seri Najib Tun Razak was mired in
the controversial 1MDB saga that threatened his political survival. One
recalls that Najib was the Defence Minister at the time of the murder. See
“Malaysia govt responds to Al Jazeera investigation,” Al Jazeera English,
10 September 2015.
2. Rep. Randy J. Forbes, ‘Not Enough Subs so Buy More: Rep. Forbes’, 8
March 2016, http://breakingdefense.com/2016/03not-enough-subs-
so-buymore-rep-forbes/.
3. Nani Afrida, “Indonesia needs more submarines,” The Jakarta Post, 6
April 2016.
4. “Prawit confirms submarine purchase,” Bangkok Post, 1 July 2016.
5. In fact, the U.S. Navy was so concerned about the reckless way Qaddafi
used his Soviet weapons that each time, whenever a crisis broke out in
the Mediterranean between the US Sixth Fleet and the Libyans, the
navy alerted its attaché office in Belgrade to conduct an immediate
9 CONCLUSION 133
reconnaissance of the Libyan Foxtrot boats in Tivat, Yugoslavia, where

Tripoli maintained two of the submarines for periodic overhaul. Peter A.
Huchthausen and Alexandre Sheldon-Duplaix, Hide and Seek: The Untold
Story of Cold War Naval Espionage (New Jersey: John Wiley & Sons, Inc.,
2009), pp. 302–303.
6. For this see Peter Hennessy and James Jinks, The Silent Deep: The Royal
Navy Submarine Service since 1945 (London: Penguin Books, 2016).
7. The Indonesians, for example, signed a submarine rescue pact with
Singapore back in 2012, but thus far the pact has not made much pro-
gress. By contrast, the Singapore-Vietnam pact came later, yet it has
already progressed onto the stage of drafting the standard operating pro-
cedures.
8. This is discussed in our sister volume, Naval Modernisation in Southeast
Asia:Problems and Prospects for Small and Medium Navies.
9. This is the position adopted for example by Colin Gray, Weapons Don’t
Make War: Policy, Strategy, and Military Technology (University Press of
Kansas, 1993).
10. A much quoted remark by German Chancellor Bethman-Hollweg in
October 1912 as cited in Sir Edward Llewellyn Woodward in Great
Britain in the War of 1914–1918 War (London: methuen, 1967) p. 167.
11. Hennesy and Jinks, op cit.
Authors Biography
Geoffrey Till is Emeritus Professor of Maritime Studies at King’s College
London and Chairman of the Corbett Centre for Maritime Policy Studies. Since
2009, he has also been a Visiting Professor and Senior Research Fellow at the
Rajaratnam School of International Studies, Singapore. His Understanding
Victory: Naval Operations from Trafalgar to the Falklands was published by ABC
Clio in 2014, and he is currently working on a fourth edition of his Seapower: A
Guide for the 21st Century.
Collin Koh Swee Lean is a Research Fellow at the Maritime Security Programme,
part of the Institute of Defence and Strategic Studies which is a constituent unit
of the S. Rajaratnam School of International Studies (RSIS). He is especially inter-
ested in researching on naval affairs in the Indo-Pacific, focusing on Southeast Asia
in particular, and generally issues related to naval technologies, naval modernisa-
tion, naval arms control and the offence–defence theory. Collin also taught at the
Military Studies Programme and taught various professional military education and
training courses with the Singapore Armed Forces Training Institute. Prior to join
the Maritime Security Programme, Collin worked at the Military Studies Programme
(2010–14) and the Centre for Non-Traditional Security Studies (2008–10), also at
RSIS.
Appendix
© The Editor(s) (if applicable) and The Author(s) 2018 135

Southeast Asia, Part Two, DOI 10.1007/978-3-319-58391-4
Indonesian submarine operations
No. Operation Unit Period Location Antagonists/partners Mission
1 Nanggala RI Nanggala Jan–Mar 1960 Indian Ocean/Aceh DI/TII Aceh Intelligence gath-
136 Appendix
ering
2 Tjakra RI Tjakra Feb–Mar 1960 Maluku RMS Sabotage
3 Waspada RI Tjakra May–Jun 1960 Maluku Dutch Sabotage
4 Lumba- RI Tjakra Jun–Jul 1960 Java Sea India Joint exercise
Lumba
5 Karel RI Nanggala Jan–Feb 1961 West Irian Dutch Intelligence gath-
Doorman ering
6 Antareja RI Nanggala Feb–May 1962 West Irian Dutch Intelligence gath-
ering
7 Jayawijaya I RI Tjakra Mar–Aug 1962 West Irian Dutch Sabotage (aborted)
RI Nagabanda
RI Trisula
RI Tjandrasa
RI Nagarangsang
8 Cakra I RI Nanggala Jul 1962 West Irian Dutch Intelligence gath-
RI Trisula ering
RI Tjandrasa
RI Nagarangsang
RI Nagabanda
9 Cakra II RI Trisula Aug 1962 West Irian Dutch Special
RI Tjandrasa Commando Op
RI Nagarangsang
(continued)
10 Alugoro RI Widjajadanu Jul–Aug 1962 West Irian Dutch Sabotage (aborted)
RI Hendradjala
RI Bramasta
RI Pasopati
RI Tjudamani
RI Alugoro
11 Bull dog RI Trisula Jan–Feb 1963 Sulawesi Sea United Kingdom Intelligence gath-
ering
12 Wisnu Mukti RI Nagarangsang Apr–May 1963 West Irian UN Show the flag
RI Tjudamani
RI Alugoro
13 War patrol RI Nagarangsang Sep–Dec 1963 Karimata Straits UK, Australia, NZ Intelligence gath-
RI Tjudamani ering
RI Hendradjala
14 Kentjana RI Pasopati Oct 1963–Feb 1964 Indian Ocean United Kingdom Intelligence gath-
ering
15 Ganyang RI Nanggala Jan–Dec 1964 Malacca, Karimata, Malaysia Intelligence gath-
Malaysia RI Nagabanda SCS ering
RI Tjandrasa
RI Tjudamani
RI Hendradjala
RI Alugoro
16 Kangguru RI Nagabanda Jun–Jul 1964 Indian Ocean UK & Australia Intelligence gath-
ering
17 Tjegat RI Pasopati Aug–Sep 1964 Sunda, Lombok United Kingdom Show the flag
RI Tjandrasa Straits
Appendix
RI Alugoro
RI Tjudamani
137
(continued)
18 Teliti RI Bramasta Aug–Sep 1965 Christmas Island UK & Australia Intelligence gath-
ering
19 Gugus Tugas RI Nagarangsang Oct 1965–Mar 1966 Arabian Sea Pakistan Joint exercise
X RI Bramasta
138 Appendix
20 Waspada RI Widjajadanu Jul–Oct 1966 SCS, Malacca Malaysia Patrols

RI Bramasta
21 Makassar RI Pasopati 1972 Makasar Strait Illegal fishermen Patrols
22 Southern KRI Pasopati 1975 Java Sea Australia Joint exercise
cross
23 Seroja KRI Pasopati Feb–Mar 1976 Banda Sea Fretilin Special
Commando Op
24 ASEAN meet- KRI Pasopati 1978 Philippines Philippines Security assistance
ing
25 Halilintar KRI Pasopati May–Sep 1979 South China Sea Viet, Mal, Spore Patrols
KRI Bramasta
26 Wilayah Barat KRI Nanggala Apr–May 1992 Indian Ocean Lusitania Expresso Intelligence gath-
ering
27 Timor Timur KRI Cakra Aug–Oct 1999 East Timor INTERFET Intelligence gath-
KRI Nanggala ering
28 Ambalat KRI Nanggala May 2005 Sulawesi Sea Malaysia Intelligence gath-
ering
29 Passex KRI Nanggala Aug 2012 Java Sea United States Joint exercise
Source Wahyono S. K., ed., 50 Tahun Pengabdian Hiu Kencana 1959–2009 (Jakarta: Panitia Penerbitan Buku 50 Tahun Pengabdian HIU KENCANA, 2009),
217–244; Ade Marboen, “KRI Nanggala-402 dan USS Oklahoma City latihan bersama di Laut Jawa”, Antara, August 30, 2012, http://www.antaranews.com/
berita/330367/kri-nanggala-402-dan-uss-oklahoma-city-latihan-bersama-di-laut-jawa

Submarine Issues For Small and Medium Navies: Naval Modernisation in Southeast Asia, Part Two

Uploaded by

Copyright:

Available Formats

Submarine Issues For Small and Medium Navies: Naval Modernisation in Southeast Asia, Part Two

Uploaded by

Document Information

Original Title

Copyright

Available Formats

Share this document

Share or Embed Document

Sharing Options

Did you find this document useful?

Is this content inappropriate?

Copyright:

Available Formats

Submarine Issues For Small and Medium Navies: Naval Modernisation in Southeast Asia, Part Two

Uploaded by

Copyright:

Available Formats

NAVAL

ISBN 978-3-319-58390-7 ISBN 978-3-319-58391-4 (eBook)

© The Editor(s) (if applicable) and The Author(s) 2018

Cover illustration: © John Rawsterne/patternhead.com

Printed on acid-free paper

This Palgrave Macmillan imprint is published by Springer Nature

1 Submarines and Their Acquisition: A General

2 Submarine Acquisition in Southeast Asia: The Dangers 15

3 Submarine Acquisition in Australia 29

4 Submarine Acquisition in Japan 41

5 Submarine Acquisition in Indonesia 59

6 Submarine Acquisition in Singapore 83

7 Submarine Acquisition in Malaysia 97

8 Submarine Acquisition in Vietnam 109

AIP Air Independent Propulsion (of submarines)

MCM Mine Counter Measures

Geoffrey Till is Emeritus Professor of Maritime Studies at King’s

Collin Koh Swee Lean is a Research Fellow at the Maritime Security

Fig. 5.1 Indonesia’s submarine operations, 1959–2012 63

Table 1.1 ‘Guesstimate’ on new submarines in the Indo–Pacific

Submarines and Their Acquisition:

Keywords Naval modernisation · Southeast Asia · Submarines in naval

© The Author(s) 2018 1

For such war-fighting functions, the air-independent propulsion

Neither should the potential attractiveness of non-nuclear deterrent

alike. If anything the submarine’s capacity to deliver these addi-

their torpedoes.16 The allied submarine force assembled to protect the

increase their dependency on others. In terms of design and delivery

Table 1.1 ‘Guesstimate’ on new submarines in the Indo–Pacific region by 203023

Country Number of new boats

acquisition.22 A guesstimate of the future consequence of these efforts

The Question: Why?

The Question: How?

development of the domestic economy be handled and the relationship

The Question: With What Consequences?

8. Posted as ‘Sea denial, US maritime Strategy and Conventional Deterrence

Balance, summary of the Naval Systems Projections Database (NSPD),

Submarine Acquisition in Southeast Asia:

Abstract The acquisition of submarines is not only intrinsically difficult

Keywords Naval modernisation · Southeast Asia · Proliferation

© The Author(s) 2018 15

response from an adversary. National prestige and a desire to keep up

in February 2009, French and British nuclear ballistic missile submarines

This string of submarine accidents shows that the underwater envi-

Maintenance and Support Risks

This dependence may place limitations on the strategic employment of

intelligence gathering are major roles for submarines in Southeast Asia.

Furthermore, anti-submarine and submarine weapons are clumsy ones

of submarines travelling submerged outside of its declared archipelagic

The ability of submarines to escape detection is decreasing as new

Reducing the Risks

of mutual interference (PMI) with submarine operations might be possi-

suited to maritime confidence building measures, including an incident

27. ‘Wahid warns Singapore submarines not to stray’, Reuters News, 26 April

Submarine Acquisition in Australia

Abstract Australia’s submarine acquisition programme is one of the

Keywords Australia · Naval modernisation · Southeast Asia

Australia’s Submarine Capability: The Requirement

© The Author(s) 2018 29

2 Submarine Acquisition in Southeast Asia: The Dangers 15

3 Submarine Acquisition in Australia 29

4 Submarine Acquisition in Japan 41

5 Submarine Acquisition in Indonesia 59

6 Submarine Acquisition in Singapore 83

7 Submarine Acquisition in Malaysia 97

8 Submarine Acquisition in Vietnam 109

Fig. 5.1 Indonesia’s submarine operations, 1959–2012 63

Table 1.1 ‘Guesstimate’ on new submarines in the Indo–Pacific

Submarines and Their Acquisition:

Keywords  Naval modernisation · Southeast Asia · Submarines in naval

Table 1.1 ‘Guesstimate’ on new submarines in the Indo–Pacific region by 203023

8. Posted as ‘Sea denial, US maritime Strategy and Conventional Deterrence

Submarine Acquisition in Southeast Asia:

Abstract  The acquisition of submarines is not only intrinsically difficult

Keywords  Naval modernisation · Southeast Asia · Proliferation

Maintenance and Support Risks

27. ‘Wahid warns Singapore submarines not to stray’, Reuters News, 26 April

Submarine Acquisition in Australia

Abstract  Australia’s submarine acquisition programme is one of the

Keywords  Australia · Naval modernisation · Southeast Asia

Australia’s Challenges in Acquiring

Submarine Acquisitions in the Indo-Asia-Pacific:

Submarine Acquisition in Japan

Abstract  Japan has had considerable experience in submarines opera-

Keywords  Naval modernisation · Submarines · Japan · China’s military rise

The Success of US Navy Submarine Operations

Lessons of IJN’s Failed Submarine and ASW Operations

1. For Japan, as a resource-poor nation, SLOC security is the highest

3. Technological advantage, in both ASW and submarine warfare, is

The Postwar Revival of Japan’s Submarine Force

The US Alliance: A Strategy of Shield (JSDF) and Spear

The Main Mission of JMSDF: SLOCs Protection

Tailored ASW as a Basic Force Building Concept of the

1. Operations to maintain safety of maritime transportation, and

1960s and 1970s: A Time of Training

1970s–1990s: Using Technology to Become a Real ASW

1. 100 P-3Cs for wide-area ocean surveillance and ASW,

And After: Fully Matured ASW and Multi-Mission SSKs

Submarine Acquisition in Indonesia

Abstract   The reasons for submarine acquisition in Indonesia are

Keywords  Naval modernisation · Submarines · Indonesia · Global

Fig. 5.1 Indonesia’s submarine operations, 1959–2012. Source see Appendix

Challenges and Implications to Regional Stability

6. James Goldrick and Jack McCaffrie, Navies of South-East Asia (Abingdon,