Introduction

Russia’s recent deployment of a conventionally armed, diesel-powered submarine to Indonesia should not be dismissed as routine naval activity. It is a calculated strategic signal. One that highlights a growing challenge for Australia and calls into question the resilience of U.S. extended deterrence in the Indo-Pacific. While such deployments fall below the nuclear threshold, they reveal an emerging approach to strategic competition. The use of advanced conventional capabilities can undermine the systems that enable nuclear deterrence.

At the center of this challenge is the vulnerability of U.S. nuclear command, control, and communications (NC3) architecture. Facilities in Australia, including Pine Gap and Naval Communication Station Harold E. Holt, are integral to this architecture. They support early warning, signals intelligence, and communications with nuclear forces. As such, they are not only strategic assets but also potential targets. Modern diesel-electric submarines—quiet, survivable, and increasingly capable—can operate in Australia’s northern approaches and threaten these critical nodes with precision strike options or intelligence-gathering missions that enable future disruption.

The Gray Zone Effect

This development reflects a broader shift in adversary strategy. Rather than relying on overt nuclear coercion, states such as Russia are exploring how to achieve strategic effects through conventional means. By targeting NC3 infrastructure using submarines, cyber operations, or long-range precision strike, adversaries can degrade the credibility of nuclear deterrence without crossing the nuclear threshold. This approach exploits the grey zone between peace and war, complicates escalation dynamics, and introduces ambiguity into alliance responses. It is not escalation dominance in the traditional sense, but escalation manipulation, and shaping the environment so that nuclear deterrence becomes less certain, less credible, and therefore less effective.

Recent Chinese naval activity reinforces this concern. The PLA Navy’s circumnavigation of Australia should not be viewed as routine presence or symbolic signaling alone. Rather, it demonstrates an emerging capacity to operate persistently along Australia’s littoral approaches and key maritime choke points—areas proximate to critical infrastructure that underpins U.S. and allied NC3. Such operations enable the mapping of undersea terrain, surveillance of communication pathways, and potential identification of vulnerabilities in systems such as subsea cables and relay nodes. In a crisis, these capabilities could be leveraged to conduct limited, deniable disruption of NC3 functions that degrade communication, delay decision-making, and complicate alliance coordination without crossing the threshold of armed attacks. In this sense, China’s activity mirrors and reinforces the broader trend: the use of conventional means to hold at risk the foundations of nuclear deterrence.

For Australia, the implications are significant. The traditional model of U.S. extended deterrence, anchored in the threat of nuclear retaliation, assumes that nuclear forces remain survivable, communicable, and politically usable. However, if NC3 systems are degraded or disrupted, that assumption weakens. Deterrence begins to erode not because nuclear weapons are absent, but because their employment becomes uncertain or delayed. In such a scenario, adversaries may calculate that they can act with greater freedom at the conventional level, confident that escalation can be managed or avoided. 

Policy Recommendations

This evolving threat environment demands a recalibration of Australia’s defense and deterrence posture. Nuclear deterrence remains essential, but it is no longer sufficient on its own. It must be reinforced by a comprehensive strategy that integrates conventional resilience, grey-zone competition, and a more explicit recognition of the role nuclear forces play in underpinning deterrence across all domains.

First, Australia should prioritize the hardening and resilience of NC3-related infrastructure on its territory. This includes enhancing physical protection, investing in redundancy and dispersal, and strengthening cyber defenses. Facilities such as Pine Gap and Harold E. Holt must be able to operate under contested conditions, ensuring continuity of communication and decision-making even in the face of sustained disruption. This may also require the development of alternative communication pathways, including space-based and mobile systems. Resilience is not merely a defensive measure; it is a core component of deterrence, signaling to adversaries that attempts at degradation will not succeed.

Second, Australia must significantly expand its undersea surveillance and anti-submarine warfare (ASW) capabilities. The ability to detect, track, and, if necessary, neutralize hostile submarines in Australia’s maritime approaches is critical to protecting strategic infrastructure. Investments should focus on integrated undersea sensor networks, maritime patrol aircraft, autonomous systems, and closer operational integration with allies. A persistent and credible ASW posture will complicate adversary planning, increase operational risk, and reduce the feasibility of covert operations targeting NC3 nodes.

Third, Canberra should deepen strategic dialogue with Washington on the role of Australia within U.S. nuclear deterrence architecture. This dialogue must move beyond general assurances and address specific contingencies, including how attacks on NC3 infrastructure in Australia would be interpreted. Greater clarity around escalation thresholds, attribution challenges, and response options will reduce the risk of miscalculation and strengthen the credibility of extended deterrence. This should include regularized nuclear consultation mechanisms and scenario-based planning.

Fourth, Australia should take the lead in advocating for the development of an Indo-Pacific nuclear alliance. Such a framework that brings together the United States, Japan, South Korea, the Philippines, Papua New Guinea, and Australia, would formalize shared deterrence responsibilities and strengthen collective resolve. While politically sensitive, this arrangement could include elements of nuclear consultation, planning, and burden-sharing, similar in principle to NATO’s nuclear sharing arrangements. By distributing deterrence functions and signaling unity, such an alliance would complicate adversary calculations and reinforce the credibility of nuclear deterrence across the region.

Fifth, Australia must engage India more directly on the implications of Russian strategic behavior. As a key regional power with longstanding ties to Moscow, India occupies a unique diplomatic position. Canberra should clearly communicate its concerns regarding Russian military activities in the Indo-Pacific, including the risks posed to critical infrastructure and regional stability. In parallel, India should be encouraged to consider the broader consequences of a hypothetical Russian attack on Australia, not only for bilateral relations, but for its strategic partnerships with both the United States and Australia. This dialogue would not seek to force alignment, but to underscore the interconnected nature of regional security and the potential costs of strategic ambiguity.

Sixth, Australia should explore options to visibly anchor U.S. nuclear deterrence in the region. This necessitates a proactive approach to alliance integration. Mechanisms such as enhanced consultation, increased transparency around nuclear policy, and potential participation in nuclear planning arrangements could reinforce deterrence by demonstrating resolve and cohesion. Initiatives under AUKUS provide a foundation for this deeper integration and should be expanded to include broader deterrence considerations.

Seventh, Australian defense policy must explicitly recognize the interdependence of conventional and nuclear deterrence. Investments in long-range strike, cyber capabilities, and undersea warfare are essential, but they must be understood as part of a broader deterrence framework. These capabilities contribute to resilience and denial, but they are ultimately underpinned by the threat of escalation. Ensuring that this relationship is clearly articulated in strategy and doctrine will strengthen deterrence coherence and improve signaling to adversaries.

Finally, Australia must broaden its strategic focus to account for multiple nuclear-capable adversaries operating in the Indo-Pacific. While China remains the primary focus of defense planning, Russia’s increased presence in Southeast Asia underscores the need for a comprehensive approach. Strategic competition is no longer confined to a single actor or domain. It is multi-faceted, simultaneous, and increasingly coordinated. Australia’s deterrence posture must reflect this complexity.

Conclusion

The central lesson is clear. Deterrence in the 21st century cannot be treated as a layered system in which nuclear weapons sit passively at the top. Instead, nuclear deterrence must actively underpin and reinforce every level of conflict, including the conventional and grey-zone domains. Adversaries are increasingly seeking to exploit gaps between these layers, using conventional means to achieve strategic effects without triggering nuclear retaliation.

To respond to this challenge, Australia must take seriously the credibility of the nuclear deterrent on which it relies. This means investing in the resilience of critical systems, strengthening conventional capabilities, and engaging more deeply with allies and partners on the role of nuclear alliances and forces in regional security.

In an era defined by ambiguity and threshold management, the effectiveness of deterrence will depend on integration, clarity, and resolve. By advancing new nuclear alliance structures, deepening strategic dialogue, which includes India, and reinforcing both conventional and nuclear pillars of deterrence, Australia can ensure that sophisticated conventional threats do not undermine the stability of the broader strategic order.

Natalie Treloar is the Australian Company Director of Alpha-India Consultancy, a Senior Fellow at the Indo-Pacific Studies Center (IPSC), a Senior Analyst at the National Institute for Deterrence Studies (NIDS), and a member of the Open Nuclear Network. Views expressed are the author’s own.

Silent Signals: Russian and Chinese Conventional Threats to NC3 and U.S. Extended Deterrence in Australia was originally published on Global Security Review.

Deterrence does not rest solely on possessing nuclear weapons. It also depends on the assurance that those weapons cannot be neutralized, constrained, or rendered ineffective by an adversary’s ability to maneuver, surveil, or strike first. Geography, therefore, matters. In the emerging strategic environment, Greenland occupies one of the most consequential geographic positions in the world.

Denial as the Foundation of Nuclear Survivability

The survivability of U.S. nuclear forces, particularly the sea-based leg of the nuclear triad, is the cornerstone of strategic stability. Ballistic missile submarines (SSBNs) provide the most secure retaliatory capability precisely because they operate undetected at sea. But stealth is not automatic. Submarines must transit known maritime corridors to reach patrol areas, and those corridors create opportunities for adversary interference.

For U.S. and allied forces operating in the Atlantic and Arctic, two choke points are decisive: the GIUK Gap (Greenland–Iceland–United Kingdom) and the Bear Gap between Greenland and Svalbard. These routes connect the Arctic Ocean to the North Atlantic and serve as the primary pathways for submarines moving between bastion areas and open-ocean operating zones.

If Russian or Chinese submarines could transit these gaps freely, they would be able to threaten NATO SSBNs, target transatlantic sea lines of communication, and position themselves for nuclear or conventional strikes against NATO territory and U.S. nuclear forces. Denying that access—rather than reacting after the fact—is what preserves nuclear survivability. Greenland makes such denial far more feasible.

Greenland as a Strategic Gatekeeper

Greenland’s location enables persistent surveillance, early warning, and anti-submarine warfare operations across the Arctic–Atlantic interface. Sensors, airfields, space and radar infrastructure, and command-and-control nodes associated with Greenland enable the United States and NATO to monitor adversary movements and constrain their ability to maneuver undetected.

This is not about tactical confrontation; it is about strategic denial. Greenland’s geography makes it exceedingly difficult for Russian or Chinese forces to move quietly from the Arctic into the Atlantic, increasing the likelihood that such efforts would be detected, tracked, and, if necessary, intercepted. When combined with American technology, Greenland adds uncertainty, constrains their options, complicates operational planning, and reduces incentives for escalation.

Russia’s Arctic Strategy and the Olenya Complex

Russia’s own posture reinforces Greenland’s importance. Moscow has invested heavily in the Arctic, operating 32 bases, expanding air and missile defenses, and increasing submarine activity across the High North. The Kola Peninsula hosts a substantial portion of Russia’s nuclear forces, supported by infrastructure such as the Olenya nuclear weapons storage facility, which underpins long-range aviation and missile operations.

Russia’s objective is twofold: to shield its own nuclear forces within a protected Arctic bastion, and to enable submarines and aircraft to push outward into the Atlantic when required. Those outward movements would be designed to threaten NATO’s reinforcement routes, hold allied territory at risk, and directly threaten U.S. strategic forces and American cities.

By enabling the U.S. and NATO to better monitor and deny access through the Arctic gaps, Greenland limits Russia’s ability to mobilize and deploy 40 percent of its submarine force. This denial mission directly strengthens Euro-Atlantic security by reducing the coercive value of Russian nuclear signalling or capacity for destruction.

China, the Arctic, and Global Deterrence

Although China is not an Arctic power by geography, it increasingly behaves like one strategically. Beijing’s naval expansion and interest in Arctic routes reflect its ambition to operate on a global scale. Chinese submarines operating in cooperation with Russia, or benefiting from shared intelligence and surveillance, could complicate the maritime balance in the North Atlantic.

Preventing Chinese submarines from accessing these waters is therefore as important as containing Russian forces. Even a limited Chinese presence would require diverting allied assets and introducing new strategic risks. Greenland helps pre-empt that outcome by reinforcing allied control over Arctic approaches and denying adversaries the ability to open a northern axis of competition.

This denial function links Greenland directly to Indo-Pacific security. The same U.S. nuclear forces that deter conflict in Asia depend on freedom of manoeuvre and survivability in the Atlantic and Arctic. If those forces are threatened in one theatre, credibility erodes in all others.

Air, Missile, and Early Warning Dimensions

The Arctic is also a critical domain for air and missile operations—America’s planned “Golden Dome.” Long-range bombers and ballistic missiles generally follow polar trajectories to maximize range and payload and minimize warning time. Greenland’s position enables early detection, tracking, and integration into broader air and missile defense architectures.

By denying adversaries access to Arctic airspace, Greenland reinforces strategic stability by reducing incentives for first-strike calculations over the North Pole. This capability is essential in an era of increasingly compressed decision timelines.

Conclusion

Greenland matters because it enables strategic denial by denying Russian and Chinese submarines, aircraft, and missiles access through the Arctic and North Atlantic gaps that connect global theatres. That denial preserves the survivability of U.S. nuclear forces, protects allied homelands, and sustains the credibility of extended deterrence across both the Euro-Atlantic and Indo-Pacific regions.

In an age defined by competition over access and geography, Greenland is not peripheral but essential to maintaining the balance of power and preventing great-power conflict.

Natalie Treloar is the Australian Company Director of Alpha-India Consultancy, a Senior Fellow at the Indo-Pacific Studies Center (IPSC), a Senior Analyst at the National Institute for Deterrence Studies (NIDS), and a member of the Open Nuclear Network. Views expressed in this article are the author’s own.

Greenland, Strategic Denial, and the Survivability of U.S. Nuclear Forces was originally published on Global Security Review.