Submarine Proliferation

Israel Import Behavior

Capabilities | Import | Export

In 1988, the Ingalls Shipyard of Pascagoula, Mississippi, was chosen to deliver two Dolphin-class submarines to Israel funded by U.S. military aid. Howaldtswerke-Deutsche Werft (HDW) and Thyssen-Nordseewerke (TNSW) were to act as subcontractors. A domestic debate concerning military priorities and fiscal pressures, partially resulting from the first Gulf War, led Israel to cancel the program in 1990. Germany then offered a military aid package to Israel that included the two submarines. This decision has been attributed to the embarrassment caused by the discovery of significant cooperation between German companies and Iraq's arms industry.[1,2,3] In 1995, Israel ordered a third submarine with costs shared equally between Israel and Germany.[4]

Israeli Dolphin-class submarine.
Source: Israeli Defense Forces Web Site, http://www.idf.il/navy/html/galery/galery3.htm.

There has been widespread speculation regarding the armament of the submarines. According to HDW, the Dolphin-class submarines it built were equipped with weapon systems similar to those installed on other diesel-electric submarines.[5] However, various sources have reported that upon arrival at Haifa, Israel, the submarines were modified, and fitted with cruise missiles armed with nuclear warheads.[6] For more information on Israel's possible submarine-launched nuclear capabilities, please see the Israel: Current Capabilities file.

The Dolphin-class submarine was designed in accordance with Israeli demands, including four 650mm torpedo tubes.[7] However, the German Defense Ministry has stated that upon delivery to Israel, liners were to be fitted to decrease the diameter of the tubes to accommodate 533mm Harpoon containers. But the Dolphin-class is equipped with six 533mm torpedo tubes as well, which are capable of launching Harpoons.[8] It seems possible, therefore, that the 650mm tubes might have been designed to accommodate indigenously built, long-range submarine-launched cruise missiles. The German government has acknowledged that it could not rule out different equipment being installed on the submarines.[9]

While restrictive German export regulations theoretically bar the sale of weapons to crisis areas, an exception was made in the case of Israel.[10] Referring to its "special responsibility," the German government generally has interpreted its arms export guidelines in Israel's favor.[11,12] However, some foreign media did note that construction appeared to be slower than usual when Benjamin Netanyahu was prime minister, and speculated that this might be due to his government's position toward the Middle East peace process. The decision to provide the first two submarines to Israel as military aid did encounter the opposition of several parties in the German parliament. Germany has also felt some outside pressure to alter its military dealings with Israel. Norwegian officials reportedly demanded that a training course for the Israeli crew, which was to be to be undertaken in Norwegian waters, be cancelled.[13]

The Israeli Navy (IN) has indicated its interest in acquiring at least two additional submarines, ideally of the same type. However, cuts to the 2004 Israeli defense budget mean that such an acquisition is unlikely unless foreign funding materializes.[14] There have already been discussions regarding a possible submarine sale: in 2002, Israeli officials broached the issue during a visit to Germany.[15] Although earlier negotiations have failed to come to terms over price issues,[16] HDW began talks concerning technical aspects of the possible construction of further vessels for the IN, after having received permission from the German government.[17] In November 2003, however, the German government rejected a new deal to export additional submarines to Israel. Some reports state that this was due to the concerns raised by allegations that German submarines are being used as nuclear platforms.[18,19] Others explained the German government decision by pointing to defense budget cuts, arguing that while the political will to provide a military assistance grant to finance two more boats for Israel was there, the funds were not.[20] However, in November 2005, outgoing Chancellor Gerhard Schroeder approved the sale of two Dolphin-class submarines to Israel for a total of €1 billion ($1.17 billion USD). This deal was struck in the final days of Schroeder's government prior to Angela Merkel becoming Chancellor.[21] Berlin is ready to provide up to €333 million in funding from the German federal budget; Israel will fund the remaining costs.[22] HDW will build the submarines, but the design will be influenced by prior Israeli operational experiences with their current class of Dolphin boats. The new boats are expected to include advanced AIP technology and a hull design improving the cramped quarters.[23] Like the Dolphins purchased by Israel in the past, the new boats will be equipped with 650mm torpedo tubes—again leading to much speculation that the Israelis intend to outfit the submarines with nuclear-armed cruise missiles.[22]

Before importing the Dolphins, the Israeli Navy depended upon three Gal-class submarines, designed by Germany for Israel, and constructed at the Vickers Shipyard in the United Kingdom in 1973-77. The Gal-class is a modified Type 206A coastal submarine. The Gals were decommissioned when the Dolphins were commissioned into the Israeli Navy, and Israel had planned to sell the vessels. The Thai Navy was reportedly interested in acquiring two vessels, while South African investors were allegedly seeking one submarine as a tourist attraction as well. Ecuador, Poland, Sri Lanka and India had also been mentioned as potential buyers, but negotiations were not successful.[24,25,26,27] However, Israel decided not to sell the submarines and now intends to recommission them after currently ongoing refits at HDW are completed.[28]

Sources:
[1] Stephen Saunders, Jane’s Fighting Ships: 2002-2003 (Coulsdon, Jane’s Information Group, 2002).
[2] "German submarines for Israel," Foreign Report, June 27, 1991; in Jane’s Website, http://www.janes.com.
[3] "Ship profile (III): INs Dolphin," Naval Forces, 1998, Vol. 19, No. 6, pp. 62-77; in ProQuest Information and Learning Company, http://proquest.umi.com/pqdweb.
[4] "Third Dolphin given joint go-ahead," Jane’s Defence Weekly online edition, http://jdw.janes.com, March 18, 1995.
[5] "HDW liefert drittes U-Boot der 'Dolphin'-Klasse," Pressearchiv 2000, July 25, 2000, HDW Website, http://www.hdw.de.
[6] Michael Nitz, "Israel’s newest sub sets out for Haifa," Jane’s Defence Weekly, Vol. 32, No. 2, July 14, 1999.
[7] Interview with Israel Navy Commander Major General Alex Tal by Alex Fishman, "If Israel wants to hide anything--it will be at sea," Yedi'ot Aharonot, December 31, 1999; in "Israel: outgoing Navy Chief on subs, Syria, Mediterranean," FBIS Document TA0201154800.
[8] Hubert Wetzel, "Delfin mit übergrossem Kanonenrohr," Süddeutsche Zeitung, September 1, 1999; in Lexis-Nexis Academic Universe, http://web.lexis-nexis.com.
[9] "Nuclear armament with German help," Der Spiegel, October 30, 2000; in "Germany proves 'massive support' to Israel's nuclear weapons program," FBIS Document EUP20001030000465.
[10] David Rodman, "Isreal's national security doctrine: an introductory overview," Middle East Review of International Affairs, September 2001; in "Academic views evolution of Israel's national security doctrine," FBIS Document GMP20011009000010.
[11] Eckart Lohse, "Israel will get what it needs, when it needs it," Frankfurter Allgemeine Zeitung, May 4, 2002; in "Article views German weapons exports to Israel, military cooperation," FBIS Document EUP20020504000081.
[12] Middle East Newsline, February 18, 2002; in "Germany reportedly pressured to end secret defense ties with Israel," FBIS Document GMP20020219000192.
[13] Islam Kamal, "Israeli Navy supplied with German submarines," Rose Al-Yusuf, July 13, 1999; in "New German submarines arrive in Israel," FBIS Document NC2008071099.
[14] Amos Harel, "Navy eyes 2 new Dolphin submarines," Ha'aretz, February 19, 2003; in "Israeli Navy hoping US, Germany to fund purchase of another 2 Dolphin submarines," FBIS Document GMP20030219000084.
[15] Alexander Szandar, "Secrets with a tradition," Der Spiegel, December 9, 2002; in "German weekly says Israel major recipient of German arms despite tank argument," FBIS Document EUP20021209000180.
[16] "Israel abandons drive for 2 more Dolphins," Middle East Newsline, December 8, 2000; in "Israel forgoes 2 more Dolphin subs purchase over German price," FBIS Document GMP20001208000058.
[17] "Kieler Werft soll wieder U-Boote fuer Israel bauen Erste Zusammenfassung," Associated Press Worldstream, November 6, 2003; in Lexis-Nexis Academic Universe, http://web.lexis-nexis.com.
[18] "U-Boot-Lieferung vorerst gestoppt," Focus online edition, http://focus.msn.de, November 23, 2003.
[19] Ingo Preissler, "Nur ohne atomare Ausrüstung," Berliner Zeitung online edition, http://www.berlinonline.de/berliner-zeitung/_html/index.html, November 7, 2003.
[20] Aluf Benn, "Berlin puts Israeli subs on hold," Ha'aretz online edition, http://www.haaretz.com, December 25, 2003; in "Germany suspends talks on supplying Israel with 2 more submarine due to budget cuts," FBIS Document GMP20031225000056.
[21] "German Government Approves Sale of Submarines to Israel," Der Spiegel, November 20, 2005; in FBIS Document EUP20051120014001.
[22] Hinnerk Berlekamp, "U-Boote Atomwaffenträger für Israel?" Berliner Zeitung, January 30, 2006; in Lexis-Nexis Academic Universe, http://web.lexis-nexis.com.
[23] Alon Ben-David, "Israel Looks to Acquire more German Submarines," Jane's Defence Weekly, November 25, 2005.
[24] Arieh O'Sullivan, "Israel to sell used submarines to Thailand," The Jerusalem Post, 6 September 2001; in "Israel - Thailand may buy used Gal-class submarines," FBIS Document GMP20010906000038.
[25] Robert Rochowicz, "A gift from Norway," Polska Zbrojna, February 10, 2002; in "Poland assessing submarines to be taken over from Norway," FBIS Document EUP20020211000270.
[26] Steve Rodan, "No takers for Israel's Gal-class submarines," Jane's Defence Weekly online edition, http://jdw.janes.com, August 15, 2001.
[27] "Ecuador/SUBMARINES/Introduction," Jane's Fighting Ships 2001-2001 online edition, http://jfs.janes.com.
[28] A.D. Baker III, "World's Navies Are in Decline," US Naval Institute Proceedings, Vol. 130, No. 3 (March 2004), p. 32; in ProQuest Information and Learning Company, http://proquest.umi.com/pqdweb.

This material is produced independently for NTI by the James Martin Center for Nonproliferation Studies at the Monterey Institute of International Studies and does not necessarily reflect the opinions of and has not been independently verified by NTI or its directors, officers, employees, agents. Copyright © 2008 by MIIS.