Air-Sea Battle and Offshore Control are not Mutually Exclusive: The Case for a Full-Spectrum U.S. Conventional Deterrent in East Asia

Over the past two years, the debate over U.S. military options for defending East Asian allies from potential Chinese aggression has primarily been between proponents of the Air-Sea Battle operational concept and proponents of the Offshore Control strategic concept. The conventional wisdom appears to be that the two concepts are mutually exclusive. Such a view makes no sense. Simply put, there is no reason why key elements from both cannot be integrated within a single holistic strategic concept that provides circumstance-based flexibility in covering the entire spectrum of potential Sino-American conventional conflict.

In order to see why this is so, let’s first examine how the two concepts are defined in their authoritative source materials and then summarize both sides’ main arguments (with a few linked representative examples).

Air-Sea Battle

Air-Sea Battle is a U.S. Department of Defense (DoD) operational concept that outlines the Joint combined arms capabilities, doctrinal tenets, and Command, Control, and Communications (C³) approaches necessary for maintaining U.S. forces’ access to and freedom of maneuver within opposed theaters. Air-Sea Battle’s present contents flow from the unclassified, clearly-articulated, and widely-overlooked January 2012 Joint Operational Access Concept (JOAC). DoD leadership, senior service leaders, and Air-Sea Battle Office personnel have been consistently explicit in stating Air-Sea Battle is not a strategy in its own right (or even a campaign plan), and that it is not specifically targeted against any particular country.

Nevertheless, many Air-Sea Battle proponents outside DoD assert that the concept is highly applicable to deterring—and if that fails, then waging—a Sino-American war. This school largely believes it would be impossible to prevent a major Chinese People’s Liberation Army (PLA) fait accompli against a U.S. ally in East Asia, let alone have a chance at eventually inducing China to restore the geostrategic status quo ante should a major conflict erupt, if U.S. and allied militaries were incapable of (at minimum) quickly bogging down a PLA offensive and then rallying to restore key defensive ‘facts on the ground.’ Given the region’s geography, the most important of these ‘facts’ would arguably be the security of the trans-oceanic and intra-theater maritime lines of communication America’s allies depend upon for military reinforcement and economic sustenance. Air-Sea Battle proponents therefore argue that U.S. forces must be capable of performing conventional, cyber, and electronic attacks against PLA infrastructure and forces in order to protect friendly maritime lines of communication as well as arrest PLA offensive operations. While most such attacks would likely occur within the contested maritime zone, the proponents assert U.S. forces would also need to be capable of striking PLA infrastructure and non-nuclear forces on the Chinese mainland if strategically necessary. Lastly, while this school generally believes Air-Sea Battle would be incapable of winning a war on its own, they also believe the success of any grand strategy for deterring aggression against allies on China’s doorstep (and defending them if need be) would depend in large part upon the latent availability (and selective use) of the concept’s tools and methods.

Many critics of Air-Sea Battle argue strikes against mainland China would carry unacceptable risks of triggering inadvertent or accidental escalation to the nuclear threshold. Some of the concept’s critics believe these strikes would be automatically executed regardless of the conflict scenario, or that they could only be practicably executed in the form of an escalation precedent-setting preemptive strike by the U.S. Other critics assert Air-Sea Battle’s allowance for land-attack strikes implies the concept embraces a strategy of coercively bombarding an opponent into submission. Additional critics declare that such strikes reflect a deterministic and techno-centric way of war in which the means employed are disconnected from the ends sought. Lastly, a number of critics point out that Air-Sea Battle is not directly applicable to countering China’s ongoing ‘salami tactics’ campaigns in the East and South China Seas.

Offshore Control

Unlike the official Air-Sea Battle concept’s adversary-agnostic focus on the operational level of war, Offshore Control is an unofficial strategic concept conceived by defense academia specifically to address the Sino-American military competition. Offshore Control consists of two main thrusts, both of which are intended to deter war through the latent threat of their credible implementation. The first would be a distant blockade of China’s sea lines of communication that would be primarily achieved by U.S. or allied militaries’ control over Indo-Pacific maritime chokepoints lying beyond the PLA’s effective reach. This blockade would be aimed at compelling conciliation through economic punishment, namely by reducing China’s access to oil and other vital raw materials (and possibly forcing it to pay higher prices on the margins for what it imports overland), as well as by reducing China’s ability to sell its wares in major overseas markets. Offshore Control’s other element would consist of traditional campaigns by the U.S. to prevent effective PLA control of the East and South China Seas, directly defend threatened allies’ territories, and secure control of the maritime lines of communication connecting these allies with the world—all without engaging in any kind of strikes into China.

Offshore Control’s advocates assert that their concept would be more scalable in terms of intensity and controllable in terms of escalation than Air-Sea Battle to match up to the nature of the Chinese acts of aggression that precipitated a given conflict. They also assert that Offshore Control is built around a coherent theory of victory: the raising of Chinese leaders’ costs to an intolerable level by preventing them from militarily attaining their political objectives, as well as by coercively—yet reversibly—economically punishing the Chinese people.

While critics of Offshore Control typically agree that maritime blockades can play strategically useful supporting roles in a conflict, they caution that any embargo is inherently dependent upon the cooperation (or coercion) of neutrals including other great and regional powers, might be too permeable or insufficiently painful to effectively coerce the targeted nation’s leaders and citizens, and is not devoid of horizontal or vertical escalation risks. Other critics argue that the global economic repercussions of a blockade of China would risk catastrophic international political blowback against the U.S. Just about all critics of Offshore Control’s blockading element argue against the belief that the leaders of a great power as large and resourceful as China could be compelled to concede primarily through blockade or any other strategy of political-economic coercion. A few go further to caution that allocation of forces and their supporting infrastructure (e.g. surveillance, reconnaissance, logistics) to blockade enforcement would in many cases trade off against allocation of forces and infrastructure to the primary effort: direct defense of allied territories and lines of communication. Indeed, these critics note  that the aforementioned defensive tasks would be made incredibly difficult by virtue of allied countries’ close proximities to mainland China; PLA forces’ ever-increasing reach in the form of theater ballistic missiles and standoff-range missile-armed aircraft; and the PLA’s unquestionable in-theater quantitative superiority. These critics conclude that allowing PLA forces to strike from mainland China with impunity against allied territories and lines of communication—and thus cause U.S. and allied defensive forces deployed on or operating from those territories (not to mention any allied populations) to wither on the vine—would be strategically ruinous. The same would be absolutely true in a conflict of any scale with respect to allowing the PLA’s mainland-located surveillance resources to observe the contested zone unhindered.

It should be noted that a variation on Offshore Control exists that discards the concept’s coercive blockading element while retaining its maritime denial element and its foreswearing of strikes into China. However, the above critiques regarding the concept’s ability to handle scenarios in which the PLA employed mainland-based aerospace strike forces or mainland-located maritime surveillance resources still apply, and thus I do not assess it separately.

Synthesis

Several truisms can be derived from the preceding arguments. Regarding Air-Sea Battle, it would be illogical and ahistorical to assert that any kind of U.S. coercive strike campaign against Chinese economic or civil infrastructure could successfully defend embattled allies at an acceptable level of risk. It would also be illogical and ahistorical to assert that U.S. forces’ abilities to conduct wartime operations in the East Asian maritime would inherently depend upon them executing preemptive conventional strikes against PLA infrastructure and forces located in mainland China, or that ‘high-end’ operations in general would be appropriate for all conceivable scenarios. That said, it ought to be observed that no authoritative DoD source or credible Air-Sea Battle advocate has ever publicly made such assertions.

Turning to Offshore Control, it would be unsound to assert that a notional U.S. campaign to defend an ally (or restore freedom of maneuver within East Asian waters) could succeed under all conceivable scenarios without ever having the need to conduct any form of strikes against the PLA inside China’s borders. It would also be quite deterministic to assert that an economic blockade would assuredly induce China to restore the status quo ante within a politically acceptable amount of time without hazarding Chinese escalation.

Once we discard these problematic assertions, it becomes quite obvious that much of Air-Sea Battle and Offshore Control actually overlap to a remarkable degree. It is therefore impossible to escape the impression that there is no reason why specific elements from both concepts cannot be unified within a single coherent strategic concept. In fact, their integration where logical and appropriate creates a range of incrementally-intensifying options for responding to notional Chinese acts of aggression. This merger’s logic becomes readily apparent when we consider several variables that thus far have been largely overlooked in the debate: the belligerents’ characterization and valuation of their political objectives, and a confrontation’s unique political and strategic circumstances. As Clausewitz tells us, these variables combine to directly influence the means the belligerents choose to employ and the scale of their clash. This becomes evident when we examine plausible scenarios along the spectrum of Sino-American conflict. 

Tomorrow, addressing high-end salami tactics and limited war scenarios.