In recent years, the United States has begun to shift its military focus away from counter-terror operations and back toward the possibility of a large-scale conflict with near-peer opponents like China. Unfortunately, nearly two straight decades of the Global War on Terror has left the American defense apparatus on the wrong footing for such a war. In some important respects, America now finds itself playing catch up; working to close capability gaps that have presented themselves in Europe and the Pacific.
While America retains the largest military on the planet, it also has further reaching obligations than any other force on the planet as well. In every corner of the globe, America's military serves in a variety of capacities, from providing a stabilizing presence, to training foreign militaries to defend themselves, to enforcing international norms on the high seas. As we've discussed in some depth before, America's Navy may be huge for this era of relative global stability, but it would find itself significantly outnumbered in a Sino-American war in the Pacific. That issue becomes even more clear when you consider that the U.S. Navy couldn't deploy the entirety of its fleet to any one waterway without leaving a number of other important interests un-guarded.
When you combine China's rapidly growing Navy with its well-armed Coast Guard and its maritime militia, you get a positively massive 770-ship Chinese presence in the Pacific. For context, the massive U.S. Navy currently boasts only around 293 ships–and while President Trump has pushed for growth to reach a 355-ship Navy, no real plans to get there have yet to materialize. That means the U.S. Navy would be left to face China's massive sea fairing presence while outnumbered at least two to one.
When the most powerful military in the world isn’t enough
Having a massive fleet alone isn't enough to win a 21st century conflict on the high seas–It's equally important that you have the right kinds of ships to leverage for specific roles.
Over the years, advancing technology has enabled the United States to move away from the massive fleets of ships and aircraft it maintained during the Second World War, and toward a lower number of assets that are capable of filling multiple roles. Ships like the Arleigh Burke-class guided missile destroyers, just like multi-role aircraft like the F-35 Joint Strike Fighter, are properly outfitted to serve in a number of capacities. This mindset has allowed the United States to expand its capabilities while reducing its personnel requirements and the overhead costs of maintaining far more assets with far more specialized roles.
But there are downsides to America's love affair with "multi-role" platforms: They dramatically increase the cost of research and acquisition, and that increased cost forces purchases in fewer numbers. It also forces military assets into positions that don't fully leverage their broad capabilities.
Three Arleigh Burke-class guided-missile destroyers, the USS McCampbell (DDG 85), USS Lassen (DDG 82) and USS Shoup (DDG 86) steam in formation during a photo exercise. (U.S. Navy photo by Chief Photographer's Mate Todd P. Cichonowicz)
For some useful context into how more advanced technology has enabled the U.S. to increase capability while decreasing volume, consider that America's military apparatus wielded a whopping 6,768 ships and an astonishing 300,000 combat airplanes at its peak during World War II. As America poured money into better military technology throughout the Cold War, it transitioned to an era of valuing technology and capability over volume, and today the U.S. Navy boasts just 293 ships, and America maintains a comparatively paltry 13,000 military aircraft.
With so many fewer platforms to utilize, these multi-role ships and airplanes are left doing a wide variety of work that has to be prioritized. Despite being capable of filling multiple roles, these platforms can often only fill one role at a time — making them more effective for strategic posturing, but less effective in a combat situation. Arleigh Burke-class guided missile destroyers are incredibly powerful ships, equipped with a variety of guns, missiles, and torpedoes, but are often relegated to simplistic missile defense operations because of their role within the Aegis missile defense apparatus. These destroyers serve as a shining example of how a ship with a number of uses may get stuck in a single defensive role during large scale conflict.
As former Chief of Naval Operations Admiral John Richardson put it, BMD (ballistic missile defense) ships are restricted to very confined operating areas that he refers to as "little boxes."
A cargo ship packed with missiles? Really?
If the United States were to find itself on a collision course with China, one of the nation's first priorities would be finding ways to rapidly expand both America's military presence and strategic capabilities in the Pacific. China owns a positively massive ballistic missile stockpile (including hypersonic anti-ship missiles), which would mean missile defense would be considered a significant priority for America's Aegis destroyers. Unfortunately, that would limit the ability for America's destroyers to operate in a more offensive capacity, as they steamed in circles around their area of responsibility, waiting to intercept any missiles lobbed their way.
Left to right, the guided missile cruiser USS Vicksburg (CG 69), and the guided missile destroyers USS Roosevelt (DDG 80), USS Carney (DDG 64) and USS The Sullivans (DDG 68) launch a coordinated volley of missiles during a Vandel Exercise (VANDALEX). (US Navy photo)
This would be a significant waste of destroyers, which would in turn limit the capability of other battle groups that couldn't rely on the offensive power of these warships. In a real way, America would simply need more vertical launch missile tubes (commonly referred to as VLS cells, or Vertical Launch System cells) in the Pacific to bolster both offensive and defensive operations — and it would be essential to get them as quickly and as cheaply as possible.
That's where the idea for missile barges, or missile ships, comes into play. In a 2019 article in the U.S. Naval Institute's Proceedings, five experts, including a retired Navy captain and a retired Marine Corps colonel, offered their suggestion for rapidly procuring and equipping commercial cargo ships for combat operations.
"The Navy should acquire and arm merchant ships, outfitting them with modular weapons and systems to take advantage of improving technology and shipping market conditions while providing capability more rapidly and less expensively than traditional acquisition efforts."
-Captain R. Robinson Harris, U.S. Navy (Ret.); Andrew Kerr; Kenneth Adams; Christopher Abt; Michael Venn; and Colonel T. X. Hammes, U.S. Marine Corps (Ret.)
The premise behind missile barges has been around for some time; after all, at its most simplistic levels, this idea boils down to "just stick a bunch of missiles on a ship you have laying around," but what differentiates this modern missile barge concept from past iterations is the technology of our day. America has long possessed "containerized" missile platforms that would sit comfortably on the deck of large cargo ships. Further, with data-fusing supercomputers like the F-35 Joint Strike Fighter, America has also already demonstrated the capability of engaging targets with surface-based weapons via targeting data relayed by nearby aircraft.
Put simply, we already have modular weapon systems that would work when operated off the decks of cargo ships, and we've already proven that weapons of that sort can be leveraged to engage targets identified by aircraft… That means this concept would require very little in the way of infrastructure building or development–which equates to both cost and time savings.
How would missile barges work?
Procuring the hulls
The first step to building a fleet of missile barges would be procuring the hulls of commercial cargo ships, which would likely be a fairly easy endeavor if a war in the Pacific were to occur. It's estimated that as much as 1/3 of all global commerce sails across the South China Sea on an annual basis, and a conflict between the United States and China would curtail a majority of these trips–due to both the drop in trade between these two economic power houses and the perceived danger of sending commercial ships through what would effectively be the site of the greatest naval conflict in all of recorded history. As a result, purchasing these vessels would likely come at a significantly reduced cost.
Purchasing a new commercial double hulled cargo ship would normally run the United States between $25 and $50 million dollars, but cargo ships that are already in use can be procured on websites like NautiSNP for pennies on the dollar, with some vessels currently on the market for just over $1 million.
Again, a significant drop in trade through the Pacific would likely result in even greater cost savings as firms liquidate their assets in the region to recoup some of their losses.
Modifying commercial ships into missile barges
Once the U.S. Navy had procured the ships themselves, it could begin the relatively significant task of refitting them for service as missile barges. This can be accomplished in one of two ways.
The Navy could utilize containerized missile and drone assets stacked on the ship, which would make it more difficult to discern from traditional cargo vessels while dramatically reducing the actual work required to convert each ship. While the vessels would have to be marked as U.S. Navy ships and flagged as such, the similar profile to commercial ships would force the Chinese Navy to positively identify each vessel before engaging, as many weapons systems rely on inverse synthetic-aperture radar that assesses targets through little more than low-resolution profiling.
That front-end investment could be further curbed by relying on external assets like nearby Aegis destroyers for command and control, relying on the warship's radar, targeting, and command apparatus for what is effectively little more than an arsenal ship or "floating magazine." In this regard, missile barges would effectively serve as a supplement to a destroyer's existing weapons loadout.
Conversely, these vessels could be modified to carry traditional VLS tubes just like those employed by America's guided missile destroyers today. A container ship could be modified to carry a slew of vertical launch tubes carrying Tomahawk missiles in as little as three to six months. The costs would be higher, but the trade off benefit would be utilizing the same basic systems found on other Navy ships, reducing the required training and logistical concerns associated with standing up a different weapon system.
Gunner's Mate 2nd Class Charles Coleman inspects missile cell hatches on one of two Vertical Launching Systems (VLS) aboard the guided missile cruiser USS Hue City (CG 66). The VLS is capable of launching numerous missiles including the Tomahawk Land Attack Missile and SM-2 Standard Missile. (U.S. Navy photo by Photographer's Mate 2nd Class Charles E. Hill)
As the proposal in Proceedings suggests, it would be important for the Navy to carefully consider how many missile barges they intended to build, and how many missiles they intend to keep on each.
While it's possible to place more than a hundred VLS tubes and associated missiles on one of these vessels, that would represent both a massive expense and a massive target for the Chinese military. Instead, the proposal suggests converting 10 to 15 cargo ships into missile barges, each carrying between 30 and 50 Tomahawk missiles. That would limit the potential losses if such a vessel were lost, while giving it enough firepower to benefit the Navy's overarching strategy.
The hybrid-crew model
(U.S. Navy photo by Photographer's Mate Airman Jimmy C. Pan)
Of course, another shortfall we have yet to discuss in a Pacific conflict could very well be trained Sailors. As the U.S. Navy rapidly procured and modified ships into missile barges, it would also have to rapidly staff these vessels — which likely wouldn't be feasible leveraging a traditional Navy recruiting pipeline. Instead, the hybrid crew model proposed by Navy Captain Chris Rawley seems most logical.
Each missile barge would have a crew comprised of both U.S. Navy officers and civilian sailors that have experience operating these commercial vessels. By recruiting from the private sector, the U.S. Navy could rapidly field these ships with crews that are already trained and proficient at the tasks they'd be assigned, while placing Naval officers in command of the vessel and in other essential combat roles.
By using a military command element, operating missile barges in war with a crew made up in part of civilians would still be legal under international law. Indeed, this model is already in use aboard some specific Naval vessels, like the recently decommissioned USS Ponce amphibious transport dock.
These missile barges could be crewed with as few as 30 people, split between U.S. Navy and civilian personnel. Because the missile payloads would not come close to these ship's total capacity, they could also utilize buoyant cargo sealed in the hull to help make these ships more survivable in the event of an attack.
It's possible that these ships could be crewed by even fewer people in the near future, as the Navy has already earmarked $400 million in the 2020 budget for the development of two large unmanned surface ships. The Navy's Medium Displacement Unmanned Surface Vessel dubbed "Sea Hunter" has already successfully traversed the open ocean between San Diego and Hawaii all on its own, demonstrating the capability for unmanned Navy ships to come.
Are missile barges actually realistic?
Although the U.S. Navy is in the early stages of what may come to be a transformative era, it seems unlikely that the United States would shift away from its current love affair with high-cost, multi-role platforms any time soon. The new USS Gerald R. Ford-class aircraft carriers serve as a good example of how the U.S. military prefers new, shiny, and expensive hardware over old, rusty, and more cost efficient options. While some within the Defense Department are questioning the future of America's supercarriers, the alternative posited is usually something akin to smaller, but still rather large and expensive Lightning Carriers built for short-take off, vertical landing F-35Bs.
However, it's important to note that the Navy of today is a product of the past fifty years of foreign policy posturing, but that may not be the right Navy to see us through a return to large scale conflict. Today, war with China remains a distant threat, but as that threat looms closer, we may see a transition in the Navy's mindset similar to that of the Air Force's recent push for "attritable" aircraft to bolster our small volume of high-capability assets.
Attritable, a word seemingly designed to give copy editors stress wrinkles, is the term used by the U.S. Air Force to describe platforms that are cheap enough to be used aggressively, with some degree of losses considered acceptable. This has led the Air Force to investing in drones like the Kratos Valkyrie, which is a low-observable drone capable of carrying two small-diameter bombs for ground strikes while costing only a few million dollars a piece.
Kratos Valkyrie (Air Force photo by Senior Airman Joshua Hoskins)
While it would cost more than a few million dollars to field each missile barge, the price may still be discounted enough to be considered attritable when compared to $13 billion behemoths like the Ford. As unmanned ships become more common, and as a result, more affordable, it may become even more cost effective to leverage existing commercial hulls as a means of offsetting China's huge numbers advantage in the Pacific.
Does it seem likely that the U.S. Navy would start strapping missiles to old container ships any time soon? The answer is a resounding no, but if America and China continue on this collision course, America's defense apparatus may find itself being forced to make some hard decisions about just how much capability it can squeeze out of America's already massive defense budget. If that day comes, missile barges may represent one of the most cost effective force multipliers America could leverage.
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