Controversy has troubled naval aviation from the early days of the century, when primitive airplanes originally went to sea. At first, airpower was seen as a useless diversion of scarce funds from more pressing naval requirements like the construction of big-gun battleships. Later, after naval aviation became a serious competitor for sea power’s throne, bitter infighting arose between gunnery and airpower advocates. Today, as the acknowledged “big stick” of America’s Navy, the aircraft carrier is under attack from those who claim to have better ways to project military power into forward areas. Air Force generals plug B-2A stealth bombers with precision weapons (so-called “virtual presence”). Submariners and surface naval officers hawk their platforms carrying precision strike missiles. A good case can be made for all of these. Still, in a post-Cold War world that becomes more dangerous and uncertain by the week, aircraft carriers have a proven track record of effectiveness in crisis situations. Neither bombers nor “arsenal ships” can make that claim.
Question: What makes aircraft carriers so effective?
The USS George Washington (CVN- 73) operating her embarked carrier air wing One (CVW-1). Battle groups based around aircraft carriers are the backbone of American seapower.
OFFICIAL U.S. NAVY PHOTO
Answer: Carriers and their accompanying battle groups can move freely over the oceans of the world (their free movement is legally protected by the principles of “Freedom of Navigation”), and can do as they please as long as they stay outside of other nations’ territorial waters.
A nation’s warships are legally sovereign territories wherever they might be floating; and other nations have no legal influence over their actions or personnel. Thus, an aircraft carrier can park the equivalent of an Air Force fighter wing offshore to conduct sustained flight and/or combat operations. In other words, if a crisis breaks out in some littoral (coastal) region, and a carrier battle group (CVBG) is in the area, then the nation controlling it can influence the outcome of the crisis.4 Add to this CVBG an Amphibious Ready Group (ARG) loaded with a Marine Expeditionary Unit-Special Operations Capable (MEU (SOC)), and you have even more influence.5 This, in a nut-shell, is the real value of aircraft carriers.
Such influence does not come without cost. Each CVBG represents a national investment approaching US $20 billion. And with over ten thousand embarked personnel that need to be fed, paid, and cared for, each group costs in the neighborhood of a billion dollars to operate and maintain annually. That’s a lot of school lunches. That’s a lot of schools! Add to this current United States plans to maintain twelve CVBGs. And then add the massive costs of the government infrastructure that backs these up (supply ships, ports, naval air stations, training organizations, etc.), as well as the vast commercial interests (shipbuilders, aircraft and weapons manufacturers, etc.) necessary to keep the battle groups modern and credible. And then consider that not all twelve battle groups are available at one time. Because the ships need periodic yard service and the crews and air crews need to be trained and qualified, only two or three CVBGs are normally forward-deployed. (There is usually a group in the Mediterranean Sea, another in the Western Pacific Ocean, and another supporting operations in the Persian Gulf region.)
Is this handful of mobile airfields worth the cost? The answer depends on the responses to several other questions. Such as: How much influence does our country want to have in the world? What kind? How much do we want to affect the actions and behavior of other countries? And so on.
Sure, it’s not hard to equate the role of CVBGs with “gunboat diplomacy” policies of the 19th century. But doing that trivializes the true value of the carriers to America and her allies. Among the lessons the last few years have taught us is one that’s inescapable: The United States has global responsibilities. These go far beyond simply maintaining freedom of maritime lines of communications and supporting our allies in times of crisis. Whether we like it or not, most of the world’s nations look to America as a leader. And these same nations (whether they want to say so officially or not) see us as the world’s policeman. When trouble breaks out somewhere, who’re you going to call? China? Russia? Japan? Not in this decade.
Sure, it’s not always in the best interest of the United States to give a positive answer to every request for support and aid. But when the answer is positive, there is the problem of how to deliver the needed response. Once upon a time, our network of overseas bases allowed us to project a forward presence. No longer. Over the last half century, a poorly conceived and ill-executed American foreign policy has allowed us to be evicted from something over 75% of these bases. Add to this the limited resources available following the recent military drawdowns, and the National Command Authorities are left with very few options. Most of these are resident in the CVBGs and ARGs that make up the forward-deployed forces of the United States Navy.
At any given time, there are usually two or three CVBGs out there on six-month cruises, doing their day-in, day-out job of looking out for the interests of America and our allies, with adventure and danger only a satellite transmission away. Thanks to the support of service forces (fuel tankers, supply ships, etc.), a well-handled CVBG’s only limitations are the durability of machinery and the morale of the people aboard. Given the will of a strong nation to back it, CVBGs can be parked off any coast in the world, and sit out there like a bird of prey.
That is the true meaning of “presence.”
Rationale: Why Aircraft Carriers?
So why does America really need aircraft carriers? We’ve seen the theoretical, “policy” answer to that question. But what’s the practical, real-world answer? What value does a ninety-year-old military concept have in an age of satellite surveillance and ballistic missiles? How does a relative handful of aircraft based aboard Naval vessels actually effect events on a regional scale? Finally, what does this capability give to a regional CinC or other on-scene commander? All of these questions must be explored if the real value of carriers and CVBGs is to be fully understood.
Aircraft Carriers: An Open Architecture
In less than a hundred years, we’ve passed from the first heavier-than-air test flights to deep-space probes. During that same time, after over five centuries of preeminence, we have seen the demise of gunnery as the measure of Naval power. The decline of naval guns and the rise of airpower were not instantly obvious. In fact, in the early 1900’s, to suggest it would have invited a straitjacket. The first flying machines were toys for rich adventurers and stuntmen, their payload and range were extremely limited, and their worth in military operations was insignificant. The technology of early manned flight was derived from kites, bicycles, and automobiles. Structures were flimsy and heavy, and the engines bulky and inefficient.
Though the First World War did much to improve aircraft technologies, and made many military leaders believers in the value of airpower, the world powers had just made a staggering investment in big-gun dreadnought-type battleships that Naval leaders had no appetite to replace. Thus, Naval airpower wound up being limited by arms treaties or shuffled to the bottom of the funding priorities. Even so, though few saw this then, the future of Naval airpower was already a given. There are two reasons for this:
First—Aircraft soon proved they could carry weapons loads farther than guns could shoot, and with greater flexibility.
Second—An aircraft carrier can more easily accommodate upgrades and improvements than an armored ship with fixed-bore guns.
In order to retrofit a larger gun to deliver a larger shell, you have to replace the turrets and barbettes. And to do that, you have to completely rebuild a battleship or cruiser. By comparison, for an aircraft carrier to operate a new kind of aircraft, bomb, or missile, you only need to make sure that the new system fits inside the hangars and elevators. You also need to make sure that it’s not too heavy for the flight deck, and (if it’s an aircraft) that it can take off and land on the deck. Simply put, as long as an aircraft or weapons fits aboard a carrier, it can probably be
employed successfully. In modern systems terminology, the carrier is an “open architecture” weapons system, with well-understood interfaces and parameters. Much like a computer with built-in capabilities for expansion cards and networking, aircraft carriers have a vast capability to accept new weapons and systems. Thus, some battleships built at the beginning of the First World War were scrapped after less than five years service, while modern supercarriers have planned lives measured in decades.
Sure, gun-armed warships can still hurt aircraft carriers. And in fact, during World War II, several flattops found themselves on the losing end of duels with surface ships. Today, missile-armed ships and submarines pose an even greater hazard to flattops, as they do to all vessels. However, all things being equal, the range of their aircraft is going to give carriers a critical edge in any combat. Carrier aircraft can hold an enemy ship or target at a safe distance, and then either neutralize or destroy it. The word for this advantage is “standoff.” By “standing off” from an enemy and attacking him from over the horizon, you greatly reduce his ability to counterattack the carrier force, making defense much easier. In fact, just finding a CVBG is harder than you might think, as the Soviet Union discovered to its great chagrin on more than one occasion during the Cold War. If—as now seems likely—the next generation of American flattops incorporates stealth technology, then you can plan on aircraft carriers serving well into the next century.
Some Propositions about Sea-Based Airpower
The “real-world” effects of “sea-based” naval aviation (that is, aircraft based aboard ships at sea) and the principles by which battle group commanders ply their intricate and difficult trade are many, varied, and complex; and learning these takes years. What follows is no substitute for those years. Still, knowledge of some of the basic propositions about sea-based airpower that guide the plans and actions of our Naval leaders can’t help but be useful:• Control of the Total Littoral Battlespace Is Impossible without Airpower—While it cannot realistically win a battle, campaign, or war by itself, no victory is possible without airpower. Broadly defined as the effective military use of the skies—airpower is vital to controlling the “battlespace” of the littoral regions. One only need look back at British operations in the Falklands in 1982 to see how much can go wrong when a fleet operates within range of enemy land-based aircraft without proper air cover. As a result, their victory in that war was “a very near thing.”
• Sea-Based Airpower Involves a Variety of Systems—Naval forces bring a variety of systems and sensors to the littoral battlespace. To name a few: fighter jets and transport helicopters; submarine-hunting helicopters and aircraft; surface-to-air (SAM) missiles defending against aircraft and ballistic missiles; and cruise missiles. This functional diversity means that a CVBG commander can bring any number of systems and employment options to bear, greatly compounding the defensive problem of an adversary. Properly utilized and supported, sea-based airpower can provide enabling force and muscle for any number and type of military operations. Examples of this functional diversity include: deterring the use of ballistic and cruise missiles in a regional conflict, supporting amphibious and airborne operations, providing cover for a non-combatant personnel evacuation, or firing land-attack missiles and controlling unmanned aerial vehicles from submarines.
An F-14D Tomcat taxies through catapult steam on the deck of the USS Carl Vinson (CVN- 70). The four-and-a-half-acre flight deck is one of the busiest and most dangerous workplaces in the world. It also is the place where carriers prove their worth in the real world.
OFFICIAL U.S. NAVY PHOTO
• Sea-Based Airpower Is Inherently Flexible and Mobile—Because they are based aboard ships, sea-based aviation assets are highly mobile. Modem CVBGs can easily move five hundred nautical miles in a day, which means that they can redeploy almost anywhere in the world in just a few weeks. And with a little warning, a forward-deployed force can be in a crisis zone in days, sometimes even in hours. Because they are not directly tied to a land-based command structure, the personnel and units embarked aboard the ships are equipped and trained to work on their own. Finally, because sea-based air units pack a lot of power into very small packages, they have great agility in an uncertain, fast-moving crisis or combat situation.
• Sea-Based Airpower Is Inherently Offensive—While airpower has powerful defensive capabilities, it is best used in offensive operations, thus allowing its full power to be focused and timed into blows of maximum power and efficiency. The ability to rapidly shift position, for example, allows sea-based units to change their axis of attack, and makes the defensive problem of the enemy much more difficult. By simply moving into an area, sea-based aviation units fill the skies with their presence, affecting both the military situation and the mind-set of a potential enemy. Should combat operations be initiated, sea-based air units are prepared to launch sustained strikes against enemy targets for as long as required. Even if the enemy forces choose to strike back at the naval force, the mere act of the attacking fleet units degrades the hostile air and naval units involved.
• Sea-Based Airpower Provides Instant Regional Situational Awareness —A battle group entering an area provides a wide variety of intelligence-collection capabilities for a regional CinC. Along with the air and shipborne sensors organic to a naval force, the unit commanders have a number of regional and national-level intelligence-collection capabilities that can rapidly fuse the data into a coherent situational analysis. This makes the job of deciding upon future action and committing follow-on forces much less uncertain. As a further benefit, the staying power of the naval force means that minute-to-minute changes in the military and political situation in a crisis/combat zone can be watched, and trends and developments can be tracked over time, allowing a deeper and wider understanding of the regional situation.
• Sea-Based Airpower Is Protected from the Effects of International Politics—Unlike land-based air and ground units, which can’t operate without the approval of a regional ally or host country, naval forces (and air units in particular) are not affected by such issues. They are also less vulnerable to attack by enemy forces or acts of terrorism. Shielded by the international laws covering freedom of navigation, sea-based units are free to act independently. Since each ship and aircraft is the sovereign territory of the owning country, any attack or intrusion becomes a potential act of war and a violation of international law. Since few nations have the will to violate these accords, this makes naval aviation a force that does not have to ask permission to act.
• Sea-Based Airpower Provides Long-Term Presence and Power—Maritime nations have long made allowance for resupply and support of their forces at sea. As long as proper sea lines of communications can be maintained, and replacement ships and aircraft can be rotated, ships and sea-based air units can be sustained almost indefinitely on station, and mission durations of months or even years can be supported. This is a key attribute of great maritime nations, and the addition of sea-based air units to their force mix greatly enhances the power and presence they can generate. Recent examples of this kind of forward naval presence are the naval embargoes of Iraq and the Balkans, and the lead-up to the 1991 Gulf War.
• Sea-Based Airpower Can Conduct Multiple Missions at the Same Time—Since naval forces are designed with robust command-and-control capabilities, and sea-based aircraft are multi-mission-capable by necessity, sea-based air units are capable of many types of missions, and can conduct them simultaneously. Thus, attack aircraft can conduct suppressive missions on enemy air defenses, while other units are engaging in precision cruise-missile strikes, armed helicopters are securing the battlespace around the naval force, and SAM-equipped ships are conducting defensive operations against enemy ballistic- and cruise-missile strikes. Such flexi-bility gives naval leaders a critical edge when fast-breaking, rapidly changing crisis and combat situations are in play.
• Sea-Based Airpower Can Generate a Wide Variety of Effects—A naval force generates rea
ctions that range from coercion to terror. Sea-based air units add to this power, by adding a wide variety of weapon and mission effects, ranging from the use of surveillance aircraft and the delivery of special operations forces to more traditional results like the aerial delivery of munitions onto targets. Yet even here, variety is the watch-word. Because naval air units are based at sea, there are no restrictions upon the munitions they can carry and employ. This means that an enemy can expect to face everything from precision-guided penetration bombs to cluster munitions—or even a nuclear strike. Such threats can often deliver the most useful of all weapons effects, deterrence from acting with hostile force against a neighboring nation.
• Sea-Based Airpower Keeps Threats Far Away—America’s Navy has historically displayed its greatest value by keeping the threat of enemy military action on the other side of the world’s oceans. In fact, no hostile military force of any size has intruded upon our territory since the War of 1812. Today, our sea services continue this mission, and sea-based airpower provides our naval forces with much of the muscle that makes it possible. By keeping the enemy threats against our homeland at arm’s length, sea-based airpower keeps our nation strong, and our people safe in an otherwise uncertain world.
The launch of a BGM-109 Tomahawk cruise missile from the guided-missile destroyer Laboon (DDG-58) during Operation Desert Strike in 1996.
OFFICIAL U.S. NAVY PHOTO
Milestones: The Development of a Modern Weapon