China Naval Modernization: Implications for U.S. Navy Capabilities—Background and Issues for Congress

Ronald O'Rourke
Specialist in Naval Affairs

The question of how the United States should respond to China’s military modernization effort, including its naval modernization effort, has emerged as a key issue in U.S. defense planning. Admiral Michael Mullen, the then-Chairman of the Joints Chiefs of Staff, stated in June 2010 that “I have moved from being curious to being genuinely concerned” about China’s military programs. The question of how the United States should respond to China’s military modernization effort is of particular importance to the U.S. Navy, because many U.S. military programs for countering improved Chinese military forces would fall within the Navy’s budget.

Decisions that Congress and the executive branch make regarding U.S. Navy programs for countering improved Chinese maritime military capabilities could affect the likelihood or possible outcome of a potential U.S.-Chinese military conflict in the Pacific over Taiwan or some other issue. Some observers consider such a conflict to be very unlikely, in part because of significant U.S.-Chinese economic linkages and the tremendous damage that such a conflict could cause on both sides. In the absence of such a conflict, however, the U.S.-Chinese military balance in the Pacific could nevertheless influence day-to-day choices made by other Pacific countries, including choices on whether to align their policies more closely with China or the United States. In this sense, decisions that Congress and the executive branch make regarding U.S. Navy programs for countering improved Chinese maritime military forces could influence the political evolution of the Pacific, which in turn could affect the ability of the United States to pursue goals relating to various policy issues, both in the Pacific and elsewhere.

China’s naval modernization effort, which began in the 1990s, encompasses a broad array of weapon acquisition programs, including anti-ship ballistic missiles (ASBMs), submarines, and surface ships. China’s naval modernization effort also includes reforms and improvements in maintenance and logistics, naval doctrine, personnel quality, education, training, and exercises.

Observers believe that the near-term focus of China’s military modernization effort has been to develop military options for addressing the situation with Taiwan. Consistent with this goal, observers believe that China wants its military to be capable of acting as a so-called anti-access force—a force that can deter U.S. intervention in a conflict involving Taiwan, or failing that, delay the arrival or reduce the effectiveness of intervening U.S. naval and air forces. Observers believe that China’s military modernization effort, including its naval modernization effort, is increasingly oriented toward pursuing additional goals, such as asserting or defending China’s territorial claims in the South China Sea and East China Sea; enforcing China’s view—a minority view among world nations—that it has the right to regulate foreign military activities in its 200- mile maritime exclusive economic zone (EEZ); protecting China’s sea lines of communications; protecting and evacuating Chinese nationals living and working in foreign countries; displacing U.S. influence in the Pacific; and asserting China’s status as a major world power.

Potential oversight issues for Congress include the following: whether, in the context of anticipated reductions in planned levels of defense spending, the U.S. Navy in coming years will be large enough to adequately counter improved Chinese maritime anti-access forces while also adequately performing other missions of interest to U.S. policymakers around the world; the Navy’s ability to counter Chinese ASBMs and submarines; and whether the Navy, in response to China’s maritime anti-access capabilities, should shift over time to a more distributed fleet architecture.


Date of Report: November 30, 2011
Number of Pages: 75
Order Number: RL33153
Price: $29.95

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