Don't believe the hype: Beijing's Sansha military garrison is more of an administrative move than an arms buildup in the South China Sea.
In June, Beijing raised the “administrative status of the Xisha, Zhongsha and Nansha islands” from a county-level administrative office to prefectural-level city named Sansha based on Woody (Yongxing) Island in the Paracels (Xisha) archipelago in the South China Sea. In July, the People’s Liberation Army (PLA) established a division-level garrison in the newly created city also based on Woody Island.
Analysts and pundits have viewed the announcement of the new garrison with alarm. One analyst viewed the decision as “a sign of [China’s] growing reliance on hard power” in the South China Sea. Another commentator equated the announcement with a decision to create “a permanent forward-deployed military force within striking distance of such contested waters,” a view echoed by the New York Times. Still others suggested that a division of at least 6,000 soldiers would be deployed to the region and that the garrison might command units from the PLA Air Force and Navy.
Such conclusions, however, are misplaced. In particular, they misunderstand the role of garrisons (jingbeiqu, also called garrison commands or garrison headquarters) in the PLA and how China has organized the defense of the islands and reefs it controls in the South China Sea. From a military perspective, the significance of Sansha garrison should not be overstated. Alone, it will not lead to an increase in combat units in the region nor does it portend a new effort by China to militarize the disputes in the South China Sea.
In the PLA, division-level military garrisons do not command main force combat units such as infantry or armored divisions or brigades. They also do not command PLA Navy or PLA Air Force units. Instead, as described in China’s 2006 white paper on defense, garrisons and other division-level military sub-districts (junfenqu, also called prefectural military commands) are administrative headquarters established in major cities responsible for supporting the military work conducted by the municipality, such as conscription and national defense mobilization tasks. Garrisons and military sub-districts fall under provincial-level military districts (shengjunqu) and are jointly commanded by the municipality’s party committee and government. As with division-level units, they are headed by Army senior colonels, who are assisted by a handful of staff officers. Depending on their location, garrisons and military sub-districts may command PLA border defense units (up to regimental size) that share responsibility with civilian public security forces (gong’an budui) for guarding China’s borders and providing early warning of an attack.
By our count, the PLA now has about 39 division-level garrisons and nearly another 300 military sub-district headquarters throughout China. In addition, there are four corps-level garrisons in the centrally administered cities of Beijing, Tianjin, Shanghai, and Chongqing, and the Hong Kong and Macau Garrisons, which report directly to Central Military Commission. Comparatively speaking, at the same organizational level, the PLA Army currently has only about 31 infantry and armored combat divisions (though the number of combat brigades one step below a division has increased to roughly 50). The PLA has far more division-level organizations than combat-ready divisions. Thus, by itself, the establishment of division-level garrison such as the one for Sansha does not suggest the deployment of large numbers of forces.
In short, create a city or other prefectural-level administrative unit in China and a garrison or military sub-district will often be established as well. The Sansha garrison is merely the newest among hundreds of division-level organizations in the entire PLA. One report noted that the new garrison had been upgraded from People’s Armed Forces Department (wuzhuangbu) that was part of the previous county-level administrative office. Moreover, consistent with the 2006 white paper, the Ministry of Defense spokesman stated that the responsibilities of the new Sansha garrison were “defense mobilization… city guard, support for the city's disaster rescue and relief work, and [direction of] militia and reserve troops.”
So far, no border defense units have been assigned to the Sansha garrison. Instead, the existing Xisha (Paracels) maritime garrison under the PLAN’s South Sea Fleet is responsible for the actual defense of the islands in the South China Sea under China’s control. The Paracels maritime garrison is one of six division-level maritime garrisons (shuijingqu) that fall under the command of one of the three regional fleets in the PLA Navy. Maritime garrisons are responsible for conducting defensive operations (fangwei zuozhan) in their designated area and may command PLAN combat units.
Photo Credit: Wikicommons
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Kevin Ryan
The authors make good points about the lack of combat troops in a Garrison but former officer Dennis Blasko should have noted that garrisons are typically administrative organizations which exists largely to support military training and operations. The fact that the garrison is larger now means it is intended to support larger training and operations. All of this contributes to the overall increase in resources being devoted by China to this area. Finally, while some people strategize and plan in terms of "showing the flag" most serious military planners commit scarce funds and people only to serious efforts. I would take it seriously any time a state spends money and moves assets to a region. So while the new garrison is not a "shot across the bow" its significance is in increasing real infrastructure and presence.
nirvana
I wonder why the authors also failed to point out that there is no clear definition of the limit of this "prefectural" city within which the men of this garrison are supposed to patrol?
Together with the increase in military operations, the increase in geographical ambiguity, it looks like China is trying to maximize the likelihood of a clash, having always maximized the disputed area.
vic
@nirvana
China announced that it has "core interests" in the SCS. It is basically saying "you clear everything through me first". China is not maximizing the probability of conflict; there normally is no conflict in the open seas. If you challenge her "core interest", then there is a risk of conflict. It is only lately that Philippines wants to flex its tiny muscles in a very minor situation in conjunction with American announcement of "pivot to Asia". The gradual erosion of American hegemony may not be peaceful. The rise of China has been peaceful, the "other" may want it otherwise.
Observer
@ vic said "China announced that it has "core interests" in the SCS. It is basically saying "you clear everything through me first".
Oh really? Vietnam has been running its oil and gas exploration for years WITHOUT anyone approval. Vietnam is ordering not one, not two, but several submarines and warships WITHOUT anyone approval. What can china do or say but yelling like a little girl "historic evidences".
Other nations in the area are running their oil and gas exploration WITHOUT bully china approval.
One more thing, Big Russia shot at chinese ships and killed chinese a few weeks back. I wonder if they asked china approval? Of course not because china and chinese would not and could not say a word. So full of shame and humilation again and again.
You were saying something earlier about Godfather? Italian Godfather = knows how to fight. Bully china Godfather = all big talk and empty words. LOL.
Vic
@observer
If such is the case, nobody has to worry about China. Case solved.
Observer
@ vic "If such is the case".
It is NOT "if", it IS the case. All of my statements were true, just use Google and see for yourself.
Unlike chinese posters, I do not need to brag and tell tall tales. All I need to do is to tell the truth.
Bottom line, before you said such nonsense as "Godfather" and "other nations must get approval from china", do some research first before you make a fool of yourself, as a typical chinese poster, again as usual.
Vic
@Observer
I don't know what's eating you up. Pray, tell me which country you are residing in so that I can help you through your troubling thoughts.
Observer
@ vic
The issue is not who I am or where I am from. The issue is whether your previous statements were true and due to the fact that you are still unable to dispute my arguments, they were and are still not true.
I do not have any problems due to inferior complex or hundreds years of humiliation and shame like you guys.
I spoke nothing but the truth. If my statements were not true, you and any other posters would able to dispute them with facts easily.
Bottom line – I spoke softly and carry a big stick, chinese posters spew out acting tough statements such as "Godfather….smack others around…must ask for china's permission" and so on. How sad and how pathetic and how laughable.
Lee
I really wish i am not Chinese.
Our government buys it's friends (Cambodia, North Korea, Iran and Syria).
Without the money nobody would want to do business with China.
I hate our Communist government and I hate more the people that believes them.
Not all Chinese people are stupid and coward to stand up to this communist regime.
Please help us. Please help us be a democratic country.
Bankotsu
"Without the money nobody would want to do business with China."
With no money, you won't be able to do business anywhere.
nirvana
That's how China started nevertheless in the 80's. Doing business with the West while being one of the poorest countries.
vic
We should be all aware that having a large forex reserve makes it easier to do business, without needing others to finance your trade. When you are poor, you use labor to build up your capital stock (physical assets and financial assets). China built its capital stock through hard work and savings. Britain got her capital stock earlier through plunder (e.g. English East India Company & Chinese war "reparations" to England, etc.) and colonization. Chinese rise is very different indeed. Her people have always hard working and have the national stamina to go through untold miseries (one of the main reasons why China survived for thousands of years).
Lee
@Vic.
Indeed we are hardworking no doubt about that.
You forgot to mention cheating, faking, piracy, currency manipulation, unfair trading, bribery to Governments to ensure license, toxic food list can go on and on.
Vic will you please stop bragging about China. Everybody knows we don't know how to fight fairly.
Sadly I once belong to this shameful nation. Im glad i stood up and flew away the mainland. Now I am free!
vic
@Lee
When you change your mind, the motherland will always welcome you back. In the meantime, please take care of yourself.
Lee
@Vic
The only thing that would change my mind is if China isn't a Communist country anymore. If China can choose it's own leader. If China is FREE. Let China be a democracy. Put in jail all corrupt and greedy officials and their followers like you only then will China be a better place.