Submerged subs surfacing inshore are not a viable concern based on my knowledge and experience.
(Sorry to do this) Chief maybe your experience wasn't the complete picture or represents only certain areas?
I drove subs for awhile (OOD Submerged). That's why I'm saying what I'm saying. Made many unescorted surface transits. Surfaced from deep water close enough inshore to read the signs sometimes. Almost sank a sailboat one night in the Bahamas and nearly a torpedo retriever in the VaCapes.
We're invisible most of the time. That's why it's so hard to know what we're up to :-)