Connor Keating
In April 2025, Admiral Samuel Paparo delivered his annual posture statement to the House Armed Services Committee, arguing that the United States must invest in several capabilities to remain competitive in the Indo-Pacific: command, control, computing, communications, cyber, intelligence, surveillance, reconnaissance, and targeting (C5ISRT); counter-C5ISRT (C‑C5ISRT); fires; integrated air and missile defense (IAMD); force sustainment; autonomous and AI-driven systems; and maritime domain awareness and sea control. According to Admiral Paparo, space, AI, and IAMD are critical enablers for reducing risk to U.S. forces in a conflict with China. These capabilities offer exquisite performance for roughly 95 percent of the missions the United States might face short of full-scale war, but they may not be the most cost‑effective way to reduce risk in a high‑end fight with China.
In “C-Note” #3 and in his address at the Surface Navy Association’s 38th National Symposium in January 2026, Chief of Naval Operations Admiral Daryl Caudle outlined a new “hedge strategy.”1 He explained that the Navy will build a general-purpose force—the 95 percent solution—while pursuing “tailored offsets” that augment the general-purpose force and cover the high-intensity 5 percent beyond it. Examples of hedge capabilities in his C‑Note include special operations forces to counter terrorism, ballistic-missile submarines (SSBNs) for nuclear deterrence, and the “Hellscape” concept to defeat a Taiwan invasion force.2 Taken together, Admiral Paparo’s requests and Admiral Caudle’s strategy suggest a gap: the Navy is investing heavily in the 95‑percent, general‑purpose force but underinvesting in simple, low‑cost hedge capabilities tailored to the most dangerous 5 percent of scenarios. This article focuses on one particularly dangerous contingency within that 5 percent—a high‑end conflict with China—and argues that the Navy should rapidly field a set of low‑cost, non‑kinetic hedge capabilities that improve platform survivability by stressing the entire Chinese kill chain and driving up adversary salvo requirements.
A Non-Kinetic Hedge Strategy
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