Tag Archive for: crew

People matter—especially when frigate crews are too small

People are getting carried away with the virtues of small warship crews. We need to remember the great vice of having few people to run a ship: they’ll quickly tire.

Yes, the navy is struggling to recruit and retain enough people, so needing fewer on each ship is superficially attractive. The wages bill will be lower, too. But the experience of Royal Australian Navy people, including me, tells us that a ship’s endurance is measured in the size of its crew more than almost any other data point.

Moreover, overloading people with work will only worsen the retention challenge. It almost certainly is doing so already.

In a 28 February article in The Strategist, Eric Lies expounds the virtues of the Mogami-class frigate, a derivative of which is being offered to Australia for its requirement for up to 11 general-purpose frigates. Among its advantages, he says, is that the ‘design needs a smaller crew’.

Even US aircraft carriers, with crews of more than 5,000, are limited by people. Each carrier has only one flight deck crew.  When those people need rest, it’s not negotiable. A carrier captain will husband the ship’s flight deck and air crews every bit as carefully as each other.

No amount of automation will change the dependency of ship endurance on crew endurance. Getting the endurance requirement right for a warship is one of the most vital capabilities to set. It’s simple: a navy’s ability lies in its people.

It follows that the small crew of the offered Mogami derivate, probably similar to the 90 in the original design that’s in service with the Japanese navy, would be a major limiting factor for a frigate in Australia’s sea conditions and enormous operating area. We need substantial endurance if our ships are going to be on station where we want to sustain a presence.  No presence is no deterrence.

A Mogami with a crew of 90 or so (presumably including an embarked helicopter flight of six aircrew and nine maintainers), will be exhausted after a fortnight on operations, even at low intensity and in good weather.

Trying to solve the navy’s recruitment and retention problems with small crews misses the essential point. If a ship is not designed with enough endurance to deliver the capability requirement sought, especially crew size and all the supporting facilities to sustain that crew, such as food storage, then the demand placed on each person aboard will be excessive.

I have no doubt that shrinking crew sizes has contributed significantly to the Royal Australian Navy’s recent poor retention. My experience tells me that we have been asking more of our people than is reasonable and that they pass judgement in the only way they can.

This matter is critical to the sustainability of naval power. Our history has useful pointers. The 4500-tonne Perth class destroyers built in the 1960s, one of which I commanded, had crews of 330. My Adelaide-class frigate, of much the same size and completed in 1993, had a crew of 220 plus an embarked helicopter. That is, it had a mission the destroyers did not have. My frigate crew became tired much more quickly than my destroyer crew.

In my frigate, everything we did as part of normal business—such as replenishing fuel at sea, launching and recovering the helicopter, firing weapons, myriad mundane domestic tasks,  plus simulated fire fighting, plugging up of holes and patching up of people in the event of battle damage—very quickly consumed everyone available. In navy parlance, almost everything was a whole-ship evolution, requiring the entire crew be put to work. No one except the captain had the luxury of having just one job. There was no redundancy.

The smaller Anzac class frigates have essentially the same set of missions as the FFGs, although with less capability overall. As fleet commander, I saw that fatigue in their crews of around 180 was a sharper problem than in earlier ships.

With the same suite of missions as an Anzac but half the crew, the endurance of a Mogami-derivative ship would be even more limited.

The smaller the crew, the more a ship can do things in only sequence because there are just not enough people to do them in parallel. Commanders may not have a choice about that. And, even when they do, the crew will always need rest sooner if the ship, for want of people, has no redundancy.

History shows starkly what has been happening.  Australia’s future Hunter-class frigates will reportedly be around 10,000 tonnes, with crews of 180. The heavy cruiser HMAS Australia, which served in World War II, also displaced 10,000 tonnes but her crew was greater than 800. In many respects, Australia was a much simpler ship, equipped for fewer missions, albeit more labour intensive to operate.

Reducing crew numbers is incompatible with increasing the size of ships, the number and complexity of their missions, their technological complexity and the variety of their systems. Our experience already tells us this.

Time to re-establish the Royal Australian Fleet Auxiliary?

On 14 December 1944, the Royal Australian Fleet Auxiliary freighting tanker Bishopdale was in the Philippines in San Pedro Bay refuelling Australian and Allied forces when it was attacked by a Japanese kamikaze aircraft. Able Seaman Gunner Stuart Savage opened fire but, despite the efforts of the defensively equipped merchant ship’s gunnery team, the dive bomber hit the forward mast and then struck the bridge, causing significant damage and fatally wounding Savage and two of his shipmates.

The story of the Bishopdale and the fleet auxiliary is little known, but perhaps it’s time to reinvigorate the construct to support the future Royal Australian Navy.

Australia hopes for peace, but it cannot be blind to the need to prepare for the possibility of conflict. The 2023 defence strategic review stated:

[F]or the first time in 80 years, we must go back to fundamentals, to take a first-principles approach as to how we manage and seek to avoid the highest level of strategic risk we now face as a nation: the prospect of major conflict in the region that directly threatens our national interest.

That’s a stark warning that a major conflict could commence in our region with little to no time for preparation. In ASPI’s 2023–24 defence budget brief, I identified gathering the necessary workforce as the greatest risk to the Australian Defence Force’s future planning. That sentiment is highlighted in the DSR, which acknowledges the workforce issues and notes that the RAN ‘faces the most significant challenges of the three services’.

Defence’s 2023–24 budget gave the size of the RAN in 2022–23 as 15,253 personnel with a goal of 16,980 by 2025–26. However, the navy was already 495 personnel lower than forecast in the 2022–23 budget. Despite the best recruitment and retention aspirations, it is unlikely that the ADF and the RAN will reach the workforce growth target set in March 2022. Yet the future RAN will need more submariners to support the growth in crews required by the AUKUS nuclear-powered submarines and the potential growth required in surface vessel crews pending the outcome of the surface combatant fleet review due in late September.

It’s clear that structural reform will be an essential part of preparing the ADF and the RAN for the risk of conflict outlined in the DSR and the establishment of a civilian-crewed fleet auxiliary could be a key part of this. The dramatic reduction in Australia’s merchant fleet over the past decade means that this alone won’t solve the RAN’s personnel challenges but, among other structural reforms, it may assist.

Both the UK and US operate naval fleet auxiliaries consisting of logistics and sea-lift vessels crewed by civilian mariners. The RAN’s auxiliary vessels, which include the supply ships HMAS Supply and Stalwart and the landing ship dock HMAS Choules, are crewed by uniformed naval members but could be converted to civilian crewing. In fact, when the Choules was purchased from the UK, it served with the Royal Fleet Auxiliary as RFA Largs Bay and was therefore operated by a civilian crew.

The crew of the Choules is 158, but as the Largs Bay the core crew would have been 60 to 70, half the number the RAN uses to operate the same vessel. While the core crew of an RFA Wave-class tanker used to replenish the Royal Navy fleet is approximately 80, the complement of the RAN replenishment vessels, the Supply class, is approximately 170. Of course, they are different classes of vessels so it’s not an easy comparison, but the broader point is that civilian fleet auxiliary vessels generally much leaner crewed than RAN auxiliary vessels.

The re-establishment of a fleet auxiliary could also provide synergies with the increasing number of Australian Defence Vessels operated by the Department of Defence, including the Pacific support vessel ADV Reliant launched in 2022.

Additional benefits could include a reduced training pipeline for auxiliary crews, opportunities for expansion of the RAN reserve force, bolstering of the RAN’s relationship with Australia’s merchant industry and of the merchant industry’s skills, the ability to scale up in a time of crisis or conflict, and commonality across the ADV fleet.

The generation of a new fleet auxiliary wouldn’t be straightforward, but it’s exactly the kind of bold structural change the RAN will need to consider to crew the fleet of the future. The structure of the ADF and the RAN remain relatively unchanged despite the clear risks outlined in the DSR. In an era of reduced strategic warning time, bold decisions are necessary and risk must be accepted to gain strategic and operational advantage. Re-establishing the Royal Australian Fleet Auxiliary is an option worth considering.