Lawships or warships? Coast guards as agents of (in)stability in the Pacific and South and East China Sea

Do coast guards generally promote good governance in the maritime domain, and are they a means of preventing conflict escalation? Sam Bateman argued that the use of ‘white hulled’ coast guard vessels was fundamentally less provocative than deploying gray-painted warships in contested waters. Thus, the use of ‘lawships’ instead of ‘warships’ could serve to de-escalate tensions. He also saw them as better able to pursue ends of oceans governance than naval vessels, for a range of reasons including the need for specialization. Nonetheless, there has been increasing concern that some coast guards are becoming a tool of ‘gray zone’ tactics: efforts to alter the strategic status quo short of armed conflict. China is often portrayed as using the China Coast Guard in such a manner. By contrast, the Australian Pacific Patrol Boats program – which gifts coast guard patrol assets to partner States – is often portrayed as an unqualified good. This paper examines both case studies in light of the Bateman thesis to conclude that the China Coast Guard may be more of a tool for de-escalation, or at least containment of tensions, than is commonly conceded and that the most obvious benefits of the Australian Pacific Patrol Boats program may have a strategic dimension.