By Peter Briggs*
Australia’s plan to acquire Virginia-class submarines from the United State is looking increasingly improbable. The US building program is slipping too badly. This heightens the need for Australia to begin looking at other options, including acquiring Suffren-class nuclear attack submarines (SSNs) from France. (The Australian Strategic Policy Institute. The Strategist.)
The Covid-19 pandemic dramatically disrupted work at the two shipyards that build Virginias, General Dynamics Electric Boat at Groton, Connecticut, and Huntington Ingalls Industries’ yard at Newport News, Virginia. It badly hindered output at many companies in the supply chain, too. With too few workers, the industry has built up a backlog, and yards are filling with incomplete submarines.
Within six years, the US must decide whether to proceed with sale of the first of at least three and possibly five Virginias to Australia, a boat that will be transferred from the US Navy’s fleet.
Nine months before the transfer goes ahead, the president of the day must certify that it will not diminish USN undersea capability. This certification is unlikely if the industry has not by then cleared its backlog and achieved a production rate of 2.3 a year—the long-term building rate of two a year for the USN plus about one every three years to cover Australia’s requirement.
The chance of meeting that condition is vanishingly small.
The situation in the shipyards is stark. The industry laid down only one SSN in 2021. It delivered none from April 2020 to May 2022. The USN has requested funding for only one Virginia in fiscal year 2025, breaking the two-a-year drumbeat, ‘due to limits on Navy’s budget topline and the growing Virginia class production backlog’.
As of January 2025, five of 10 Block IV Virginias ordered are in the yards, as are five of 12 Block Vs for which acquisition has been announced. (Work has not begun on the other seven Block Vs.)
The building time from laying down until delivery has increased from between 3 and 3.5 years before the pandemic to more than 5 years. The tempo is still slowing: the next Virginia, USS Iowa, is due to be delivered on 5 April 2025, 5.8 years after it was laid down.
On the original, pre-pandemic schedule, all the Block IVs could probably have been delivered to the USN by now. This is a gap that cannot be recovered in a few years, despite all the expensive manpower training and retention programs in hand.
Exacerbating the problem for the yards, the Block V submarines are 30 percent larger, and more complex to build, making a return to shorter build times unlikely. Speaking to their shareholders in October, the chief executives of Huntington Ingalls and General Dynamics blamed their slowing delivery tempo on supply chain and workforce issues. HII says it is renegotiating contracts for 17 Block IV and Block V Virginias.
Furthermore, Electric Boat has diverted its most experienced workers to avoid further slippage in building the first two ballistic missile submarines of the Columbia class, the USN’s highest priority shipbuilding program, in which the Newport News yard also participates.
It gets worse. Many USN SSNs that have joined the US fleet over the past few decades are unavailable for service, awaiting maintenance. The pandemic similarly disrupted shipyards that maintain the SSNs of the Los Angeles and Virginia classes. In September 2022, 18 of the 50 SSNs in commission were awaiting maintenance. The Congressional Budget Office reports lack of spending on spare parts is also forcing cannibalisation and impacting the availability of Virginia class SSNs.
Australia’s SSN plan must worsen the US’s challenge in recovering from this situation, adding to the congestion in shipyards and further over loading supply chains already struggling to deliver SSNs to the USN.
A US decision not to sell SSNs to Australia is inevitable, and on current planning we will have no stopgap to cover withdrawal of our six diesel submarines of the Collins class, the oldest of which has already served for 28 years.
In the end, Australia’s unwise reliance on the US will have weakened the combined capability of the alliance. And Australia’s independent capacity for deterrence will be weakened, too.
As I wrote in December, it is time to look for another solution. One is ordering SSNs of the French Suffren class. The design is in production, with three of six planned boats delivered. It is optimised for anti-submarine warfare, with good anti-surface, land-strike, special-forces and mining capability. It is a smaller design, less capable than the Virginia, but should be cheaper and is a better fit for Australia’s requirements.
Importantly, it requires only half the crew of a Virginia, and we should be able to afford and crew the minimum viable force of 12 SSNs.
Let’s build on the good progress in training, industry and facility preparations for supporting US and British SSNs in Australia, all of which should continue, and find a way to add to the alliance’s overall submarine capability, not reduce it.
*Peter Briggs is a retired submarine specialist and a past president of the Submarine Institute of Australia.
