Taiwan Can Win a War With China

                                                                                                                                                                                                                                     

Taiwanese soldiers simulate fending off an attempted invasion during an annual drill at the military base in Hualien on Jan. 30. (Mandy Cheng/AFP/Getty Images)

Argument

Taiwan Can Win a War With China

Beijing boasts it can seize the island easily. The PLA knows better.

By Tanner Greer

Foreign Policy| September 25, 2018, 12:28 PM

When Chinese President Xi Jinping spoke to the 19th Party Congress about the future of Taiwan last year, his message was ominous and unequivocal: “We have firm will, full confidence, and sufficient capability to defeat any form of Taiwan independence secession plot. We will never allow any person, any organization, or any political party to split any part of the Chinese territory from China at any time or in any form.”

This remark drew the longest applause of his entire three-hour speech—but it’s not a new message. The invincibility of Chinese arms in the face of Taiwanese “separatists” and the inevitability of reunification are constant Chinese Communist Party themes. At its base, the threat made by Xi is that the People’s Liberation Army has the power to defeat the Taiwanese military and destroy its democracy by force, if need be. Xi understands the consequences of failure here. “We have the determination, the ability and the preparedness to deal with Taiwanese independence,” he stated in 2016, “and if we do not deal with it, we will be overthrown.”

China has already ratcheted up economic and diplomatic pressure on the island since the 2016 election of Tsai Ing-wen and the independence-friendly Democratic Progressive Party. Saber-rattling around the Taiwan Strait has been common. But China might not be able to deliver on its repeated threats. Despite the vast discrepancy in size between the two countries, there’s a real possibility that Taiwan could fight off a Chinese attack—even without direct aid from the United States.

Two recent studies, one by Michael Beckley, a political scientist at Tufts University, and the other by Ian Easton, a fellow at the Project 2049 Institute, in his book The Chinese Invasion Threat: Taiwan’s Defense and American Strategy in Asia, provide us with a clearer picture of what a war between Taiwan and the mainland might look like. Grounded in statistics, training manuals, and planning documents from the PLA itself, and informed by simulations and studies conducted by both the U.S. Defense Department and the Taiwanese Ministry of National Defense, this research presents a very different picture of a cross-strait conflict than that hawked by the party’s official announcements.

Chinese commanders fear they may be forced into armed contest with an enemy that is better trained, better motivated, and better prepared for the rigors of warfare than troops the PLA could throw against them.

Chinese commanders fear they may be forced into armed contest with an enemy that is better trained, better motivated, and better prepared for the rigors of warfare than troops the PLA could throw against them.

A cross-strait war looks far less like an inevitable victory for China than it does a staggeringly risky gamble.

Chinese army documents imagine that this gamble will begin with missiles. For months, the PLA’s Rocket Force will have been preparing this opening salvo; from the second war begins until the day the invasion commences, these missiles will scream toward the Taiwanese coast, with airfields, communication hubs, radar equipment, transportation nodes, and government offices in their sights. Concurrently, party sleeper agents or special forces discreetly ferried across the strait will begin an assassination campaign targeting the president and her Cabinet, other leaders of the Democratic Progressive Party, officials at key bureaucracies, prominent media personalities, important scientists or engineers, and their families.

The goal of all this is twofold. In the narrower tactical sense, the PLA hopes to destroy as much of the Taiwanese Air Force on the ground as it can and from that point forward keep things chaotic enough on the ground that the Taiwan’s Air Force cannot sortie fast enough to challenge China’s control of the air. The missile campaign’s second aim is simpler: paralysis. With the president dead, leadership mute, communications down, and transportation impossible, the Taiwanese forces will be left rudderless, demoralized, and disoriented. This “shock and awe” campaign will pave the way for the invasion proper.

This invasion will be the largest amphibious operation in human history. Tens of thousands of vessels will be assembled—mostly commandeered from the Chinese merchant marine—to ferry 1 million Chinese troops across the strait, who will arrive in two waves. Their landing will be preceded by a fury of missiles and rockets, launched from the Rocket Force units in Fujian, Chinese Air Force fighter bombers flying in the strait, and the escort fleet itself.

Confused, cut off, and overwhelmed, the Taiwanese forces who have survived thus far will soon run out of supplies and be forced to abandon the beaches. once the beachhead is secured, the process will begin again: With full air superiority, the PLA will have the pick of their targets, Taiwanese command and control will be destroyed, and isolated Taiwanese units will be swept aside by the Chinese army’s advance. Within a week, they will have marched into Taipei; within two weeks they will have implemented a draconian martial law intended to convert the island into the pliant forward operating base the PLA will need to defend against the anticipated Japanese and American counter-campaigns.

 

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Treacherous Conditions in the Taiwan Strait

Month	Storm Seasons	Average Wind/Wave Conditions	Other Factors	Suitability for Amphibious Operations
January	Gales	High	Low clouds	Poor
February	Gales	High	Heavy fog*	Poor
March	N/A	High to low**	Heavy fog	Varies
April	N/A	Low	Heavy fog	Good
May	Plum rains	Low	Heavy fog	Varies
June	Plum rains	Low	Fog, currents***	Poor
July	Typhoons	Varies with storms	Strong currents	Poor
August	Typhoons	Varies with storms	Strong currents	Poor
September	Typhoons	Varies with storms	Strong currents	Poor
October	N/A	Low to high**	N/A	Good
November	Gales	High	Low clouds	Poor
December	Gales	High	Low clouds	Poor

*Fog is a major operational factor from Feb. 15 to June 15, with the worst fog in the morning hours of April and May. Overall, average visibility is 1.2 miles in spring, 2.4 miles in winter, and 6.2 miles in summer.
**The wind and wave conditions start out as high in early March and become very low by the end of the month. By October, that is reversed.
***Currents in the strait tend to be stronger in summer and weak in winter.
Sources: Ian Easton, The Chinese Invasion Threat: Taiwan ‘s Defense and American Strategy in Asia, p. 172.

 

This is the best-case scenario for the PLA. But an island docile and defeated two weeks after D-Day is not a guaranteed outcome. one of the central hurdles facing the offensive is surprise. The PLA simply will not have it. The invasion will happen in April or October. Because of the challenges posed by the strait’s weather, a transport fleet can only make it across the strait in one of these two four-week windows. The scale of the invasion will be so large that strategic surprise will not be possible, especially given the extensive mutual penetration of each side by the other’s intelligence agencies.

Easton estimates that Taiwanese, American, and Japanese leaders will know that the PLA is preparing for a cross-strait war more than 60 days before hostilities begin. They will know for certain that an invasion will happen more than 30 days before the first missiles are fired. This will give the Taiwanese ample time to move much of their command and control infrastructure into hardened mountain tunnels, move their fleet out of vulnerable ports, detain suspected agents and intelligence operatives, litter the ocean with sea mines, disperse and camouflage army units across the country, put the economy on war footing, and distribute weapons to Taiwan’s 2.5 million reservists.

There are only 13 beaches on Taiwan’s western coast that the PLA could possibly land at. Each of these has already been prepared for a potential conflict. Long underground tunnels—complete with hardened, subterranean supply depots—crisscross the landing sites. The berm of each beach has been covered with razor-leaf plants. Chemical treatment plants are common in many beach towns—meaning that invaders must prepare for the clouds of toxic gas any indiscriminate saturation bombing on their part will release. This is how things stand in times of peace.

As war approaches, each beach will be turned into a workshop of horrors. The path from these beaches to the capital has been painstakingly mapped; once a state of emergency has been declared, each step of the journey will be complicated or booby-trapped. PLA war manuals warn soldiers that skyscrapers and rock outcrops will have steel cords strung between them to entangle helicopters; tunnels, bridges, and overpasses will be rigged with munitions (to be destroyed only at the last possible moment); and building after building in Taiwan’s dense urban core will be transformed into small redoubts meant to drag Chinese units into drawn-out fights over each city street.

        

To understand the real strength of these defenses, imagine them as a PLA grunt would experience them. Like most privates, he is a countryside boy from a poor province. He has been told his entire life that Taiwan has been totally and fatally eclipsed by Chinese power. He will be eager to put the separatists in their place. Yet events will not work out as he has imagined. In the weeks leading up to war, he discovers that his older cousin—whose remittances support their grandparents in the Anhui countryside—has lost her job in Shanghai. All wire money transfers from Taipei have stopped, and the millions of Chinese who are employed by Taiwanese companies have had their pay suspended.

Our private celebrates the opening of hostilities in Shanwei, where he is rushed through a three-week training course on fighting in the fetid and unfamiliar jungles of China’s south. By now, the PLA has put him in a media blackout, but still rumors creep in: Yesterday it was whispered that the 10-hour delay in their train schedule had nothing to do with an overwhelmed transportation system and everything to do with Taiwanese saboteurs. Today’s whispers report that the commander of the 1st Marine Brigade in Zhanjiang was assassinated. Tomorrow, men will wonder if rolling power outages really are just an attempt to save power for the war effort.

But by the time he reaches the staging area in Fuzhou, the myth of China’s invincibility has been shattered by more than rumors. The gray ruins of Fuzhou’s PLA offices are his first introduction to the terror of missile attack. Perhaps he takes comfort in the fact that the salvos coming from Taiwan do not seem to match the number of salvos streaking toward it—but abstractions like this can only do so much to shore up broken nerves, and he doesn’t have the time to acclimate himself to the shock. Blast by terrifying blast, his confidence that the Chinese army can keep him safe is chipped away.

The last, most terrible salvo comes as he embarks—he is one of the lucky few setting foot on a proper amphibious assault boat, not a civilian vessel converted to war use in the eleventh hour—but this is only the first of many horrors on the waters. Some transports are sunk by Taiwanese torpedoes, released by submarines held in reserve for this day. Airborne Harpoon missiles, fired by F-16s leaving the safety of cavernous, nuclear-proof mountain bunkers for the first time in the war, will destroy others. The greatest casualties, however, will be caused by sea mines. Minefield after minefield must be crossed by every ship in the flotilla, some a harrowing eight miles in width. Seasick thanks to the strait’s rough waves, our grunt can do nothing but pray his ship safely makes it across.

As he approaches land, the psychological pressure increases. The first craft to cross the shore will be met, as Easton’s research shows, with a sudden wall of flame springing up from the water from the miles of oil-filled pipeline sunk underneath. As his ship makes it through the fire (he is lucky; others around it are speared or entangled on sea traps) he faces what Easton describes as a mile’s worth of “razor wire nets, hook boards, skin-peeling planks, barbed wire fences, wire obstacles, spike strips, landmines, anti-tank barrier walls, anti-tank obstacles … bamboo spikes, felled trees, truck shipping containers, and junkyard cars.”

At this stage, his safety depends largely on whether the Chinese Air Force has been able to able to distinguish between real artillery pieces from the hundreds of decoy targets and dummy equipment PLA manuals believe the Taiwanese Army has created. The odds are against him: As Beckley notes in a study published last fall, in the 1990 to 1991 Gulf War, the 88,500 tons of ordnance dropped by the U.S.-led coalition did not destroy a single Iraqi road-mobile missile launcher. NATO’s 78-day campaign aimed at Serbian air defenses only managed to destroy three of Serbia’s 22 mobile-missile batteries. There is no reason to think that the Chinese Air Force will have a higher success rate when targeting Taiwan’s mobile artillery and missile defense.

But if our grunt survives the initial barrages on the beach, he still must fight his way through the main Taiwanese Army groups, 2.5 million armed reservists dispersed in the dense cities and jungles of Taiwan, and miles of mines, booby traps, and debris. This is an enormous thing to ask of a private who has no personal experience with war. It is an even great thing to ask it of a private who naively believed in his own army’s invincibility.

                 

This sketch makes sense of the anxiety the PLA officer manuals express. They know war would be a terrific gamble, even if they only admit it to each other. Yet it this also makes sense of the party’s violent reactions to even the smallest of arms sales to Taiwan. Their passion betrays their angst. They understand what Western gloom-and-doomsters do not. American analysts use terms like “mature precision-strike regime” and “anti-access and area denial warfare” to describe technological trends that make it extremely difficult to project naval and airpower near enemy shores. Costs favor the defense: It is much cheaper to build a ship-killing missile than it is to build a ship.

But if this means that the Chinese army can counter U.S. force projection at a fraction of America’s costs, it also means that the democracies straddling the East Asian rim can deter Chinese aggression at a fraction of the PLA’s costs. In an era that favors defense, small nations like Taiwan do not need a PLA-sized military budget to keep the Chinese at bay.

No one needs to hear this message more than the Taiwanese themselves. In my trips to Taiwan, I have made a point of tracking down and interviewing both conscripts and career soldiers. Their pessimism is palpable. This morale crisis in the ranks partly reflects the severe mismanagement of the conscription system, which has left even eager Taiwanese patriots disillusioned with their military experience.

But just as important is the lack of knowledge ordinary Taiwanese have about the strength of their islands’ defenses. A recent poll found that 65 percent of Taiwanese “have no confidence” in their military’s ability to hold off the PLA. Absent a vigorous campaign designed to educate the public about the true odds of successful military resistance, the Taiwanese people are likely to judge the security of their island on flawed metrics, like the diminishing number of countries that maintain formal relations with Taipei instead of Beijing. The PLA’s projected campaign is specifically designed to overwhelm and overawe a demoralized Taiwanese military. The most crucial battlefield may be the minds of the Taiwanese themselves. Defeatism is a more dangerous threat to Taiwanese democracy than any weapon in China’s armory.

Both Westerners and Taiwanese should be more optimistic about the defense of Taiwan than is now normal.

Yes, the Taiwanese Army projects that it can only hold off its enemy for two weeks after the landing—but the PLA also believes that if it cannot defeat the Taiwanese forces in under two weeks, it will lose the war! Yes, the disparity between the military budgets on both sides of the strait is large, and growing—but the Taiwanese do not need parity to deter Chinese aggression. All they need is the freedom to purchase the sort of arms that make invasion unthinkable. If that political battle can be resolved in the halls of Washington, the party will not have the power to threaten battle on the shores of Taiwan.

Both Westerners and Taiwanese should be more optimistic about the defense of Taiwan than is now normal.

T. Greer is a writer and analyst formerly based out of Beijing. His research focuses on the evolution of East Asian strategic thought from the time of Sunzi to today.

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