Behind the Fleet: The PLAN Reviews Logistics Development in the 13th Five-Year Plan

Executive Summary:

• The People’s Liberation Army Navy (PLAN) is currently implementing its 14th Five-Year Plan, which expands in part on major successes seen in the 13th Five-Year Plan.
• Key areas of PLAN improvement in the previous Five-Year Plan include the construction of new vessels and an improved logistical system, expansions in infrastructure, better availability of medical treatment, and more rigorous financial oversight.
• The PLAN views logistics as being particularly susceptible to corruption and has made cracking down on it a key policy goal.
• Collectively, these efforts are expected to promote force readiness and potentially attract better talent to the naval profession.

The People’s Liberation Army Navy (PLAN) implements its development programs in five-year plans, reflecting the approach taken by the People’s Republic of China (PRC) government to overall development. It is currently implementing its 14th Five-Year Plan, which was drafted near the conclusion of the 13th. [1] The PLAN’s development of major new platforms, such as the rapid pace at which it has launched new warships, has received the most attention from analysts. Less visible is the modernization of logistics that has occurred behind the scenes and that underpins and supports those new capabilities. PLAN logistics have undergone extensive development and continue to receive top-level leadership attention. According to PLAN sources, the 13th Five-Year Plan was a transformative period that reshaped the naval logistics system to better focus on becoming joint, lean, and efficient. [2]

An analysis of achievements made during the period of the 13th Five-Year Plan can shed light on the prospects for successful implementation of the current plan. Official PLAN sources typically offer a summary of such progress, including the major logistics achievements touted by the PLAN in its previous five-year plan. PRC President and Central Military Commission Chairman Xi Jinping has repeatedly emphasized the importance of his military’s logistics meeting his development goals, calling on the PLA to “build all the logistics necessary for war” (建设一切为了打仗的后勤) (China Military Online, September 26, 2022).

PLAN Logistics Adapts to a New System and New Requirements in the 13th Five-Year Plan

During the 13th Five-Year Plan, the PLAN continued its efforts to transform naval logistics to elevate combat readiness and modernize logistic support. Perhaps most importantly, the plan required the navy to “ensure a smooth and steady transition from the old system to the new” (确保新旧体制顺利对接、平稳过渡). Like the rest of the PLA, naval logistics has needed to adapt to a new joint operations system, which includes a division of responsibilities between the joint logistics support force, the theater commands, and the services. [3] Naval logistics work during the plan period sought to improve services, clean up management practices, and enhance comprehensive support capabilities, all with the aim of building momentum for combat readiness. The fruits of these efforts were highlighted in an article the PLAN published in People’s Navy on September 22, 2022 that reviewed progress in the modernization of the logistics system. [4] These achievements are detailed in the remainder of this section.

General Achievements

According to the article in People’s Navy, the PLAN made progress in several aspects of its logistics system, including the construction of new vessels and the implementation of an improved support system. These have been tested in various drills and exercises.

First, a batch of transport supply ships were built and joined the fleet. In particular, new Type 901 fast combat support ships (also referred to by the U.S. Navy hull classification symbol AOE) were built to meet the requirements of a fleet conducting missions in the far seas and distant oceans. Frontline logistics work also has focused on other large-scale, integrated replenishment platforms that are capable of operating in the far seas. These are intended to enhance long-range, long-endurance, all-element, and efficient far-seas mobile accompanying support capabilities. The PLAN has also used passenger ferries with amphibious capabilities to organize amphibious equipment sea transport exercises, further improving the navy’s “ability to conduct force delivery at scale across the sea” (跨海投送规模投送能力). Another advance that has enhanced task forces’ endurance and mobility was a breakthrough in common fuel technology on the naval battlefield, allowing forces to use primarily domestic petroleum products.

The PLAN announced improvements to frontline logistics during the five-year plan period. These included greater use of refrigerated systems for delivering supplies to overseas bases, as well as to islands and reefs. This has enabled direct logistics support for food delivery into units’ frozen stores, multiplying the effective replenishment of units by 5–7 times and extending freshness of produce for 45–50 days. The navy claimed that it had “comprehensively improved the standardization, regularization, and refinement of naval unit food management” (全面提高海军部队伙食管理标准化规范化精细化水平).

The PLAN also explored a new support model, starting in the Northern Theater Command Navy in 2021. In this model, “support requests are made while at sea, shore-based support prepositions it, and replenishment is conducted immediately upon berthing” (海上下订单、岸上先预置、靠港即补给). Previous practices in naval support bases were to wait until a vessel was berthed before receiving its support requests. [5] This, among other improvements, have been replicated at support bases in the other theater command navies. [6]

The navy has worked on testing many of these developments on a larger scale. For instance, in June 2021, the naval logistics system held an “integrated study and practice session” (综合研练) called “Sea Service-2021” (海勤-2021). This was the “first campaign-level logistics major exercise activity” (首次组织战役后勤大项演训活动) held under the new leadership and command system and was focused on joint operations and support. In addition, in the course of completing major exercises and drills, the navy has tested and improved its comprehensive support capabilities for diversified military tasks. This includes deeper research into “checking the strong enemy” (制衡强敌), an indirect term for their chief competitor, the U.S. military.

Infrastructure Achievements

The PLAN article noted prominently that construction on islands and reefs in the South China Sea was included in Xi Jinping’s report to the Chinese Communist Party’s (CCP) 19th National Congress in 2017 as the “proactive advancement of South China Sea island reef construction” (南海岛礁建设积极推进) (Xinhua, October 27, 2017). (This report, which the CCP General Secretary delivers every five years, is the most authoritative policy document within the party-state system.) This effort made historic breakthroughs in “strategically managing the ocean” (经略海洋) and “protecting sea power” (维护海权). On April 23, 2018, the navy held a ceremony on Fiery Cross Reef—which is also claimed by Taiwan, the Philippines, and Vietnam—to unveil a monument dedicated to the construction effort.

The PLAN made a number of other broad improvements to infrastructure and facilities. In July 2021, it established its first at-sea replenishment training center, featuring simulators that enable regular training of personnel in underway replenishment procedures without the restriction weather or other ship conditions. A large number of major comprehensive ship bases and core airfields were also constructed and an “excellent support force” (拳头保障力量) was formed on shore, at sea, and at the connection between shore and sea. Each Theater Command Navy also established “comprehensive support bases” (综合保障基地). These have focused on operational needs for future joint combat operations, including support for multiple ship types, large task forces, high-intensity support, and supporting wide-ranging operations (Qingdao Daily, April 19, 2023). [7] They are frequently hailed as the key bases capable of supporting carrier task forces, in particular those in Qingdao and Sanya (China News Network, April 24, 2023).

Following the major PLA reforms in 2016, construction contractors have played a more prominent role in naval logistics. The navy introduced a new management model in which firms provide “full-process consulting + EPC general contracting” (全过程咨询+EPC工程总承包). [8] Under this model, firms’ expertise in engineering construction is leveraged to build more advanced infrastructure, allowing the navy to concentrate on their core warfighting mission. In a related development, the PLA Navy article notes that an unspecified number of border and coastal defense units were connected to the national electricity grid.

PLAN organs (海军机关) also made progress in personnel housing. In October 2021, the problem of “people waiting for housing” (人等房) shifted to “housing waiting for people” (房等人) for the first time. Earlier that year, an unspecified PLAN command (or possibly commands) completed the renovation of 1,234 housing units that had been considered “unreasonable” (不合理). This reflects the force’s effort to improve its services and the well-being and quality of life of naval personnel, which contributes to enhancing force readiness.

Medical Achievements

The PLAN implemented a number of changes to the availability of medical treatments, coordination with COVID-19 pandemic control, and the management of medical personnel. Regarding the former, the navy promoted the use of traditional Chinese medicine, rehabilitation, and physiotherapy techniques for submarine officers and enlisted personnel, as well as calling for mental health services to be implemented vigorously. On the second point, in January and February 2020, two groups of medical personnel, totaling 485 people, were chosen from various PLAN medical institutions to participate in emergency relief efforts against COVID-19 in Hubei Province.

The PLAN also brought medical personnel under a system of “centralized management and dispatched support” (集中管理、派出保障). This entailed a more centralized approach to controlling personnel through a given area’s hospital system to optimize resource use and support different units within the hospital system’s jurisdiction. This improved the rotation of medical personnel to grassroots-level units, allowing frontline PLA forces to access medical care more efficiently (Journal of Navy Medicine, April 2013). The PLAN played a leading role across the PLA in the exploration and practice of this system.

Additionally, naval personnel have received special training, such as an August 2022 seminar entitled “Sea Service-2022” (海勤-2022) hosted by the PLA Medical University that focused on maritime medical rescue and evacuation.

Financial Achievements

Developments in the management of the navy’s finances over this period included new regulations, an audit of the service’s assets, and improvements to the benefits system for personnel and their dependents. On December 30, 2018, the PLAN announced the suspension of projects across 13 industries that generated revenue for the navy. It also noted that subsequent revenue generating projects would be “disposed of” (处置), likely referring to their cancellation, reassignment, or handing over to the military’s bidding process. The PLAN, according to this description, had completed these important goals—which had been set out by the Central Military Commission—on schedule. A major effort was made to enhance supervision and accountability of naval assets. For the first time, a comprehensive asset inventory campaign was conducted across all areas and systems of the navy from January to September 2021, forming a “single account” of all navy assets.

In January 2020, the PLAN issued “Measures on Navy Living Expense Management Inspection and Supervision” (海军生活费管理检查监督办法). These are the first financial regulations to be implemented under order by naval command since 2003. These measures were part of a wider push from the navy to “bring financial regulations and laws to the grassroots” (财务送基层), which manifested in regular activities on the topic and the creation of a PLA digital financial regulations database to provide professional guidance for grassroots units on their spending and handling of affairs, thus bridging the “last mile” of policy implementation. In a related move, the handling of support cards for military personnel (军人保障卡) was implemented more widely. These cards are assigned to personnel once they join the army, get married, and have a child, and indicate that they are entitled to certain benefits (WeChat ID of Military Correspondent Department of PLA Daily, March 29, 2018). [9]

Concrete Advances Despite Persistent Corruption

The compounding benefits of minor advances such as those outlined above are significant, even if they may seem mundane compared to the hardcore requirements of combat logistics. While ultimately in service of combat power, the PLAN sees logistics as fundamentally in service of the troops. Meeting the needs of personnel is a key driver of logistics work and resolving major problems for personnel is therefore critical. According to the PLAN, personnel have appreciated the marked improvements to their quality of life brought about by these achievements, such as the ability to use their “support cards” to acquire what they need and their daily experiences of improved mess halls and health care services. [10]

A second major point of emphasis in the 13th Five-Year Plan was cleaning up logistics and preventing corruption. This is a perennial effort across all institutions in the PRC. Foreign observers cannot easily verify the effectiveness of these efforts, but PLAN sources clearly see corruption in logistics as a chronic issue and are pursuing initiatives to address it. For the PLAN, a desire for stronger industry supervision has seen a focus on eight sectors in its annual “rectification and governance” (整肃治理) process. These include finance, supply and energy, construction, medical treatment, scientific research, and asset management, among others. Since logistics work cuts across numerous sectors that may be prone to corruption, implementing stricter discipline is an important focus of party leadership within the PLAN.

The navy views logistics work as 30 percent supply and 70 percent management, according to Wu Xueliang (吴雪良), a deputy head of a bureau within the Southern Theater Command Joint Staff Department. In this view, strict adherence to party governance of the military is the only way for improved management and for logistics to be conducted cleanly. [11] Apart from greater party oversight, other technical measures have included greater reliance on information technology in the supervision of industry support for naval logistics. This has enabled increased online verification and inspections, such as through the use of “military account funds monitoring systems” (军队账户资金监控系统) that can track financial flows within the navy and mitigate corruption. [12]

Many initiatives to promote force readiness and modernize and professionalize PLAN logistics support began before the 13th Five-Year Plan and likely bled into the 14th Five-Year Plan as part of continuous modernization and improvement efforts. For example, the 13th Five-Year Plan period culminated in the release by the Central Military Commission of the “Military Logistics Regulations” (军队后勤条例) that went into effect on January 1, 2021. This regulation has resolved many issues across PLA logistics, including in the navy, according to reports in PLA media. It also was intended to better integrate logistics into the joint operations system, standardize new logistics command and support relationships, innovate support methods, and regulate the implementation of support activities, as well as accelerate the revision of rules in naval logistics (Xinhua, December 23, 2020). [13]

Conclusion

Advances in PLAN logistics afloat and ashore are proceeding in tandem, improving efficiency and capacity of support for the fleet. The PLAN is steadily becoming more proactive in its support for units, anticipating and fulfilling needs in advance and focusing on rapidly replenishing warships to restore their combat readiness. Improved infrastructure offers greater support capacity and more automated and networked support systems, so that logistics support can scale up when needed and potentially feature some resilience during wartime. The wide implementation of personnel support measures will not only promote force readiness but could also attract better talent to the naval profession.

Xi Jinping has ordered his military to build a logistics system focused on warfighting, but many obstacles such as corruption remain. In a system prone to corruption, there are efforts by the navy to manage its effects that could ensure that it is able to function adequately in demanding times. If progress made during the 13th Five Year Plan is any indicator, the PLAN will likely make substantial advances toward its naval logistics development goals in the 14th Five Year Plan and onward.

This article has sought to examine important writings on naval logistics achievements, as expressed by the PLAN itself. In this light, it is just a snapshot of selected parts from a much larger whole. There are many other specific areas of improvement that are not covered and merit deeper examination. At a minimum, taking a broad look at the force beyond just the hardware can give observers a more complete picture of PLAN development progress.

Notes

[1] Naval leadership is tasked with completing the planning for the next five-year plan before the conclusion of the current one. See: 虞章才 [Yu Zhangcai], 坚决贯彻习主席改革强军决策指示, 坚决完成军委赋予海军的改革任务 – 苗华吴胜利田中刘毅丁毅王海王登平邱延鹏杨世光魏刚王建国出席 [“Resolutely Implement Chairman Xi’s Decision and Directives on Reforming and Strengthening the Military, and Resolutely Complete the Reform Tasks Assigned to the Navy by the Central Military Commission—Miao Hua, Wu Shengli, Tian Zhong, Liu Yi, Ding Yi, Wang Hai, Wang Dengping, Qiu Yanpeng, Yang Shiguang, Wei Gang, and Wang Jianguo in Attendance”], 人民海军 [People’s Navy], November 30, 2015, p. 1.

[2] 吴雪良 [Wu Xueliang], 加快推进海军后勤高质量发展 [“Accelerate the High-Quality Development of Naval Logistics”], 人民海军 [People’s Navy], September 22, 2022, p. 3.

[3] People’s Navy, November 30, 2015.

[4] Unless otherwise cited, this section primarily contains information from the September 22, 2022 article. See: 邹志凌 [Zou Zhiling], 王兰稳 [Wang Lanwen], 王铁刚 [Wang Tiegang], and 邬兴羽 [Wu Xingyu], 历兵秣马保打赢 – 党的十九大以来海军后勤保障工作巡礼 [“Preparation for Victory – A Tour of the Navy’s Logistics Support Work Since the 19th CPC National Congress”], 人民海军 [People’s Navy], September 22, 2022, p. 3.

[5] Ibid.; 李银川 [Li Yinchuan], 王克 [Wang Ke], and 刘勇坊 [Liu Yongfang], 保障力量如何打赢 “突围战”? – 来自北部战区海军某综合保障基地为战抓建的探索与实践 [“How Can the Support Force Win the ‘Battle to Breakout?’ – Exploration and Practice of Building for War from a Comprehensive Support Base of the Northern Theater Command Navy”], 人民海军 [People’s Navy], January 11, 2021, p. 3.

[6] 王冠宇 [Wang Guanyu], 李浩 [Li Hao], and 汪天玄 [Wang Tianxuan], 科技赋能助力保障能力跃升 – 东部战区海军某岸勤部运用信息技术打造“智慧军港” [“Technology Empowerment Helps Improve Support Capabilities – A Shore Service Department of the Eastern Theater Command Navy Uses Information Technology to Build a ‘Smart Military Port’”], 人民海军 [People’s Navy], May 10, 2022, p. 1.

[7] These bases existed previously but are continuing a long period of development and upscaling to better support large-scale joint operations. In particular, the Qingdao Support Base has been touted as the first base to support aircraft carriers since 2013.

[8] EPC stands for engineering, procurement, and construction; which is where a contractor is responsible for the entire lifecycle of a project up until its handover.

[9] The “military support card” is used for many purposes, including salary issuance, obtaining materials and other items from one’s quartermaster, receiving medical treatment, housing, and online banking, including making payments. The card contains personal information to verify personnel identity and prevent fraud and abuse.

[10] People’s Navy, September 22, 2022.

[11] People’s Navy, September 22, 2022

[12] People’s Navy, September 22, 2022.

[13] Ibid.