The United States faces a critical shortage of skilled workers in both naval and commercial shipbuilding industries. This shortage poses significant challenges, especially as the US and its allies seek to counter rising maritime threats from China. Addressing this gap through immigration could strengthen the workforce and help fulfill key defense commitments, notably those tied to the AUKUS submarine program.
As the US strives to meet its obligations under the AUKUS agreement to deliver Virginia-class submarines to Australia, labor shortages have emerged as a major bottleneck in production. The Naval Sea Systems Command estimates that the US submarine industrial base will need to hire 100,000 skilled workers over the next decade to meet demand. However, the US shipbuilding industry remains relatively small compared to global competitors, limiting available labor.
In 2023, the US produced just 157,000 tons of shipbuilding output, a figure dwarfed by China’s 32.8 million tons. Japan and South Korea produced 9 million and 18 million tons respectively, while UK and Australia—the other AUKUS members—produced only 64,000 and 4,300 tons. The small size of the US industry means fewer workers are available, and when shipbuilding slows, many skilled workers leave the field, exacerbating shortages.
Former Navy Secretary Carlos Del Toro proposed expanding immigration pathways specifically for shipbuilders, but this idea has not yet gained serious traction. Meanwhile, South Korea’s success in leveraging immigrant labor for its shipbuilding industry highlights a path that could work well in the US. The country’s longstanding use of immigration policies to attract talent in critical sectors, including the military, provides a unique advantage.
Annually, over 5,000 non-citizens enlist in the US military. These service members tend to serve longer and are more likely to have children who also join the military. Additionally, the EB-2 National Interest Waiver visa offers a route to citizenship for professionals with advanced degrees working in fields vital to US national interests, such as artificial intelligence and biomedical engineering.
Beyond highly educated professionals, the US needs more welders, additive manufacturing experts, and CNC machinists in shipbuilding. Developing a sustainable, long-term workforce is essential. A proposed “Shipbuilders to Citizens” program would allow workers with critical skills and experience in the submarine industry to earn permanent residency and citizenship by working in the sector for a set period. This approach would be a generational investment, as skilled trades are among the most likely careers to be passed down within families.
An immigration-based solution promises to attract a large pool of workers. However, the US immigration system is already overwhelmed, with application backlogs hitting capacity. Current policies tend to favor degree-holding professionals or seasonal non-skilled workers, often overlooking skilled trades. The “Shipbuilders to Citizens” program would not only stabilize the submarine industrial base but also improve the efficiency of the immigration system.
Security concerns must be addressed. The Naval Sea Systems Command requires that only US citizens build or repair Navy vessels. Yet, the reality is that non-citizens and even unauthorized workers are already involved in constructing and repairing Navy ships, sometimes at fatal risk. Providing legal immigration pathways would enable contractors and subcontractors to disclose these workers’ presence openly, allowing the Navy to monitor their roles more effectively. Workers could be limited to less sensitive tasks like hull welding. Meanwhile, commercial shipyards might employ many immigrants, freeing up skilled US citizens for sensitive Navy work.
Fears that immigrants will take jobs from American workers are unfounded. Labor shortages, not competition, are the real driver behind this debate. Even the highly praised Defense Manufacturing Accelerator program produced only 700 graduates in three years. Large inflows of immigrant workers would not displace domestic labor but complement efforts to grow the workforce.
The US must swiftly meet its AUKUS commitments. On-time delivery of Virginia-class submarines is critical to maintaining deterrence in the Indo-Pacific and strengthening US-Australia ties. The “Shipbuilders to Citizens” pathway offers a practical way to overcome workforce shortfalls and get production back on track.
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