Carlos Del Toro's Vision for a Bold Maritime Statecraft

By Bruce Kimbrell (Policy Op-Ed) Inspired by his vision for a “New, Bold Maritime Statecraft,” Secretary of the Navy (SECNAV) Carlos Del Toro spent the last year offering a master class on leveraging executive prerogative to bolster America’s maritime power. His actions reflect a commitment to operationalizing the framework of statecraft in a way that mobilizes everyone whose livelihoods are tied to the sea, ensuring we have the maritime capabilities necessary to achieve strategic advantage on the world’s oceans.

During his crusade, the Secretary has made headlines for initiatives like the Michigan Maritime Manufacturing Initiative and the establishment of the Government Shipbuilders Council, both aimed at strengthening shipbuilding and the workforce. On occasion, he raised eyebrows by embracing our allies and partners in new ways. He even demonstrated a willingness to adopt a tone when challenging industry to invest alongside government. In the beginning, some might have wondered what maritime statecraft was, what the Secretary was actually up to–and if this new approach was truly going to resonate.

What is SECNAV Del Toro Doing Differently?

The dust has settled since statecraft’s debut, and make no mistake, the Secretary is all about that domestic market. He is not content to keep doing what has always been done. Allies and partners are friends and helpers, who can accelerate America’s maritime revitalization by investing in America. Technology, business models for testing and iterating, asking new questions, and even failing are all parts of the process. He has made building America’s maritime industry the business of the Department of the Navy–shipbuilding, shipping, workforce, infrastructure, and U.S. influence over the world’s oceans are the name of the game. This is not just branding; Del Toro believes he sees the “tipping point,” as industry is the true source of America’s maritime capabilities.

Truth be told, if he had his way, SECNAV would probably have America competing for international shipbuilding business, international cargo on U.S.-flagged vessels, and opportunities to build and run international ports and organizations like the International Maritime Organization.

That would be a change of pace, considering the People’s Republic of China dominates all these areas today. However, Del Toro genuinely believes we can be that good, which has led him to position himself as a “first mover,” challenging us to think and act differently. In this way, statecraft may not be a cure-all, but it sure does serve as a compelling rallying cry.

From Vision to Action: The Role of Maritime Statecraft Under SECNAV Del Toro

Secretary Del Toro’s actions are based on principles that new stakeholders can follow as they engage with maritime statecraft. He believes by recognizing the variety of resources and tools available,we can work together across boundaries to make small changes that benefit America. By adopting this strategic mindset and understanding our national interests, options for action become clear. This approach encourages collaboration, adaptability, and a focus on using our resources effectively to strengthen the maritime industry–the foundation of our maritime power.

We can look to SECNAV’s focus on shipbuilding as a valuable example of how he is quarterbacking implementation of operations, activities, and investments through maritime statecraft. In November 2023, he led the inaugural meeting of the Shipbuilders Council, which included representatives from four cabinet departments–Defense, Transportation, Homeland Security, and Commerce–as well as five government shipbuilders. This collaborative effort united stakeholders and fostered ongoing partnerships across government to tackle the shipbuilding challenges facing the nation.

In July, he announced the Michigan Maritime Manufacturing Initiative, designed to support workforce development. This initiative was crafted in collaboration with local and state government leaders, academic institutions, and industry leaders, creating a partnership that the Department of the Navy could only aspire to achieve on its own. Luckily for the Navy, SECNAV firmly believes that we are better together, and it’s hard to argue against that point.

In June, Del Toro endorsed South Korean shipbuilder Hanwha’s investment in Philly Shipyard, a win for America aimed at assimilating best practices from the world’s third-largest shipbuilder. Korea gains the diversity of collaborating with an American-based shipyard, while we benefit from capital, modernization, cutting-edge processes, and stronger ties to a treaty allied nation.

Closely related to these external efforts, in January, SECNAV ordered a 45-day review of military shipbuilding programs to assess their status, identify delays, and recommend initiatives for improvement. This was not a ploy; Del Toro is committed to addressing the U.S. Navy’s challenges head-on. While it does not mean a free pass, it provides important context about how the Navy’s civilian leader views accountability and the value of improving through lessons learned.

So, what does this focus on shipbuilding mean for implementation and the role of maritime statecraft? It means the time for merely admiring the problem is over; it is time to act.

Operationalizing Maritime Statecraft: “Rallying All of Officialdom”

There is a strong sense of maritime energy in America today, reinforced by Secretary Del Toro’s push for a whole-of-government approach to revitalizing the maritime industry through maritime statecraft.

Do not let the term fool you; it is akin to a Swiss Army knife. It embodies a way of thinking and behaving, a process, and a rallying cry for collaboration with a bias for action. Most importantly, it is a strategic concept that everyday Americans can rally around–essentially meaning to get involved and take action with the authority you have.

In the spirit of being part of the solution rather than the problem, there are indications that the notion of an all-of-government response is beginning to gain traction across government, industry, and Congress. For instance, the U.S. Trade Representative’s launch of a Section 301 investigation into China’s attempts to dominate maritime sectors– following industry complaints–represents a critical step. We need federal efforts to leverage government tools for national objectives, and this investigation serves as a practical example of an institution focusing on maritime affairs.

There are numerous other opportunities to harness the nation’s institutional powers through a maritime statecraft mindset–one that is biased for action to achieve strategic advantage for the good of the nation. The State Department could elevate this effort by integrating maritime affairs into all international negotiations, seeking to incorporate maritime matters, and countering the influence of our strategic adversaries in maritime organizations. Meanwhile, the Departments of Homeland Security and Transportation can enhance resources and prioritize the U.S. Coast Guard and Maritime Administration in statecraft efforts.

The Department of Commerce can collaborate with economic agencies to boost U.S.-flag shipping participation in maritime trade. The U.S. Treasury can leverage its influence over economic policy coordination to address complexities related to capital-intensive maritime projects, such as modernizing shipyards, ports, and shipbuilding, as well as tax policies to incentivize the maritime marketplace in our local communities.

Additionally, the Department of Labor can collaborate with Marine Academies, universities, and innovation hubs to strengthen the workforce. Meanwhile, the Department of Energy can drive efforts to capture global market share through energy innovations related to maritime trade, such as sustainable energy technologies.

With all these possibilities in mind, one might wonder where to begin. Well, perhaps one of the best aspects of Del Toro’s approach is where he sets the starting line: what can you do today, without any new authorities or resources, to enhance maritime competitiveness, ensure access to the world’s oceans, and effectively counter adversarial influence in support of national interests?

Balancing the Case for Maritime Statecraft

A primary concern of detractors is the resource demand needed to build and maintain an innovative and internationally competitive maritime ecosystem at scale. Shipbuilding, workforce development, and technology integration are capital-intensive and will require significant investment from both the public and private sectors. Critics may argue that this strain on the national budget could limit the feasibility of SECNAV’s approach and support from Congress.

Another concern is the coordination between government and industry regarding the prioritization of efforts, which is essential for cohesive action. While SECNAV’s initiatives emphasize public-private partnerships, aligning the diverse interests of stakeholders in the maritime sector may prove challenging in fostering profit and growth. The lack of a national coordinator tied to the President or National Security Council further complicates the path to achieving the consensus needed to drive this kind of economic policy, especially as the Department of the Navy faces its own challenges.

Finally, generating the political will to act may be the greatest barrier of all. Bipartisan support will be essential for enacting and sustaining legislation on these matters. We are fortunate to have strong leadership from Congressman Michael Waltz (R-FL) and Senator Mark Kelly (D-AZ); however, in a fragmented political climate, enacting their legislation may require a level of unique bipartisanship that is rarely seen.

In consideration of these counter-arguments, our national leaders must be clear-eyed and address these concerns head-on. Today’s global maritime context demands bold, decisive actions to ensure the U.S. retains its influence at sea. But we must realize, even if the administration excels in implementation, it still wouldn’t be enough. Execution and strategies alone don’t create resources. Ultimately, maritime statecraft has hard limits–unless actions yield results that build confidence and attract capital. That is exactly what Del Toro achieved with Hanwha, and he may be betting Philly is just the beginning.

Maritime Statecraft: The Advantage of Acting

Despite the inherent risks of navigating political complexities and resource constraints, a comprehensive approach to leveraging government tools for strategic advantage in maritime matters offers a clear pathway for immediate action. Even if new resources take time to materialize, maritime statecraft still has plenty of room to run, particularly if it evolves beyond a Department of the Navy initiative.

Full Steam Ahead: Policy Recommendations for Maritime Statecraft

Secretary of the Navy Carlos Del Toro today called for a “new maritime statecraft” to prevail in an era of intense strategic competition, during remarks at the John F. Kennedy School of Government at Harvard University, Sept. 26. During his speech, Secretary Del Toro stated that maritime statecraft, in a broad sense, encompasses not only naval diplomacy, but a national, whole-of-government effort to build comprehensive U.S. and allied maritime power, both commercial and naval. U.S. Navy Photo

Secretary Del Toro has done something unique by providing America with tangible wins, and we all know how much America loves winning. However, to elevate maritime statecraft from a victory lap to championship status, we must make decisive choices.

For starters, the President could enhance this approach by taking Congress’s recommendation to appoint a coordinator to synchronize the whole-of-government approach to national maritime policy. Secretary Del Toro can further solidify the concepts’ staying power by institutionalizing and expanding efforts to scale maritime statecraft across all stakeholders.

Separate but related, the American people should fight for the adoption of the bipartisan, bi-cameral “Ship’s Act for the American People,” offered by Congressman Michael Waltz (R-FL) and Senator Mark Kelly (D-AZ). This legislation provides the funding and policy needed to revitalize the nation’s maritime sector. It includes providing U.S.-flag shipping incentives, establishing public-private capital programs for shipbuilding, promoting the maritime workforce, and creating local community maritime economic zones near our shipyards and ports. Ultimately, this bill offers the comprehensive support necessary to reverse the decline of America’s maritime power.

Finally, the nation should take advantage of the United States Trade Representative’s Investigation into our strategic adversary’s attempts to dominate facets of the global maritime system through unfair and non-competitive practices. We should also use this as an opportunity to get real about our international standing. The hard truth is that America is losing its campaign for influence over the seas.

All Hands Aboard

As we reflect on America’s maritime affairs, the challenges can feel overwhelming–how strong is our maritime industry, the very source of America’s maritime power? The answer is clear: we need to revitalize our maritime industry. For example, if tomorrow the People’s Republic of China shut down shipbuilding, they would still have an order book of around 2,539 vessels as of 2024. At the current rate of production, it would take our nation 350 years to fulfill that order.

The situation is no less dire for U.S.-flag shipping; currently, our ships handle less than 0.4% of our international trade. Additionally, our Navy is outnumbered by the People’s Liberation Army Navy, and significant portions of the world’s maritime infrastructure are effectively controlled by our chief strategic adversary.

Yet, despite these daunting challenges and more, maritime statecraft offers a glimmer of hope. The Secretary of the Navy and his team have done a great service for our nation by laying the groundwork that has begun to turn the tide of policy implementation and executive action as it relates to the seas.

However, the journey is far from complete. Let us be clear: we need more of everything. In time, Congress will provide. In the meantime, let’s concentrate on practical solutions and collaborate with Del Toro to build, crew, and operate the ships that will carry us into the future.

Commander Bruce Kimbrell is a career naval officer with deployments in Europe, Africa, the Middle East, and Asia. He has previously supported strategic maritime initiatives for the Offices’ of the Chief of Naval Operations, Secretary of the Navy, and U.S. Congressman Michael Waltz.

The views expressed are those of the author and do not reflect the official policy or position of the U.S. Navy, Department of Defense, or the U.S. Government.