Navy Large Unmanned Surface and Undersea Vehicles: Background and Issues for Congress

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Navy Large Unmanned Surface and Undersea
~~July 28~~September 8, 2020 , 2020
Vehicles: Background and Issues for Congress
Ronald O'Rourke
The Navy in FY2021 and beyond wants to develop and procure three types of large unmanned The Navy in FY2021 and beyond wants to develop and procure three types of large unmanned
Specialist in Naval Affairs Specialist in Naval Affairs
vehicles (UVs). These large UVs are called Large Unmanned Surface Vehicles (LUSVs), vehicles (UVs). These large UVs are called Large Unmanned Surface Vehicles (LUSVs),

Medium Unmanned Surface Vehicles (MUSVs), and Extra-Large Unmanned Undersea Vehicles Medium Unmanned Surface Vehicles (MUSVs), and Extra-Large Unmanned Undersea Vehicles
(XLUUVs). The Navy is requesting $579.9 million in FY2021 research and development funding (XLUUVs). The Navy is requesting $579.9 million in FY2021 research and development funding

for these large UVs and their enabling technologies. for these large UVs and their enabling technologies.
The Navy wants to acquire these large UVs as part of an effort to shift the Navy to a more distributed fleet architecture. The Navy wants to acquire these large UVs as part of an effort to shift the Navy to a more distributed fleet architecture.
Compared to the current fleet architecture, this more distributed architecture is to include proportionately fewer large surface Compared to the current fleet architecture, this more distributed architecture is to include proportionately fewer large surface
combatants (i.e., cruisers and destroyers), proportionately more small surface combatants (i.e., frigates and Littoral Combat combatants (i.e., cruisers and destroyers), proportionately more small surface combatants (i.e., frigates and Littoral Combat
Ships), and the addition of significant numbers of large UVs. Ships), and the addition of significant numbers of large UVs.
The Navy wants to employ accelerated acquisition strategies for procuring these large UVs, so as to get them into service The Navy wants to employ accelerated acquisition strategies for procuring these large UVs, so as to get them into service
more quickly. The Navy’s desire to employ these accelerated acquisition strategies can be viewed as an expression of the more quickly. The Navy’s desire to employ these accelerated acquisition strategies can be viewed as an expression of the
urgency that the Navy attaches to fielding large UVs for meeting future military challenges from countries such as China. urgency that the Navy attaches to fielding large UVs for meeting future military challenges from countries such as China.
The Navy envisions LUSVs as being 200 feet to 300 feet in length and having full load displacements of 1,000 tons to 2,000 The Navy envisions LUSVs as being 200 feet to 300 feet in length and having full load displacements of 1,000 tons to 2,000
tons. The Navy wants LUSVs to be low-cost, high-endurance, reconfigurable ships based on commercial ship designs, with tons. The Navy wants LUSVs to be low-cost, high-endurance, reconfigurable ships based on commercial ship designs, with
ample capacity for carrying various modular payloads—particularly anti-surface warfare (ASuW) and strike payloads, ample capacity for carrying various modular payloads—particularly anti-surface warfare (ASuW) and strike payloads,
meaning principally anti-ship and land-attack missiles. Although referred to as UVs, LUSVs might be more accurately meaning principally anti-ship and land-attack missiles. Although referred to as UVs, LUSVs might be more accurately
described as optionally or lightly manned ships, because they might sometimes have a few onboard crew members, described as optionally or lightly manned ships, because they might sometimes have a few onboard crew members,
particularly in the nearer term as the Navy works out LUSV enabling technologies and operational concepts. In marking up particularly in the nearer term as the Navy works out LUSV enabling technologies and operational concepts. In marking up
the Navy’s proposed FY2020 budget, some of the congressional defense committees expressed concerns over whether the the Navy’s proposed FY2020 budget, some of the congressional defense committees expressed concerns over whether the
Navy’s accelerated acquisition strategies provided enough time to adequately develop concepts of operations and key Navy’s accelerated acquisition strategies provided enough time to adequately develop concepts of operations and key
technologies for these large UVs, particularly the LUSV. In response, the Navy’s FY2021 budget submission proposes to technologies for these large UVs, particularly the LUSV. In response, the Navy’s FY2021 budget submission proposes to
modify the acquisition strategy for the LUSV program so as to provide more time for developing operational concepts and modify the acquisition strategy for the LUSV program so as to provide more time for developing operational concepts and
key technologies before entering into serial production of deployable units. Under the Navy’s proposed modified LUSV key technologies before entering into serial production of deployable units. Under the Navy’s proposed modified LUSV
acquisition strategy, the Navy is proposing to use research and development funding to acquire two additional prototypes in acquisition strategy, the Navy is proposing to use research and development funding to acquire two additional prototypes in
FY2021 and one more additional prototype in FY2022 before shifting in FY2023 to the use of procurement funding for the FY2021 and one more additional prototype in FY2022 before shifting in FY2023 to the use of procurement funding for the
procurement of deployable LUSVs at annual procurement rates in FY2023-FY2025 of 2-2-3. procurement of deployable LUSVs at annual procurement rates in FY2023-FY2025 of 2-2-3.
The Navy defines MUSVs as being 45 feet to 190 feet long, with displacements of roughly 500 tons. The Navy wants The Navy defines MUSVs as being 45 feet to 190 feet long, with displacements of roughly 500 tons. The Navy wants
MUSVs, like LUSVs, to be low-cost, high-endurance, reconfigurable ships that can accommodate various payloads. Initial MUSVs, like LUSVs, to be low-cost, high-endurance, reconfigurable ships that can accommodate various payloads. Initial
payloads for MUSVs are to be intelligence, surveillance and reconnaissance (ISR) payloads and electronic warfare (EW) payloads for MUSVs are to be intelligence, surveillance and reconnaissance (ISR) payloads and electronic warfare (EW)
systems. The Navy is pursuing the MUSV program as a rapid prototyping effort under what is known as Section 804 systems. The Navy is pursuing the MUSV program as a rapid prototyping effort under what is known as Section 804
acquisition authority. The first MUSV prototype was funded in FY2019 and the Navy wants fund the second prototype in acquisition authority. The first MUSV prototype was funded in FY2019 and the Navy wants fund the second prototype in
FY2023. On July 13, 2020, the Navy announced that it had awarded “a $34,999,948 contract to L3 Technologies, Inc. for the FY2023. On July 13, 2020, the Navy announced that it had awarded “a $34,999,948 contract to L3 Technologies, Inc. for the
development of a single Medium Unmanned Surface Vehicle (MUSV) prototype, with options to procure up to eight development of a single Medium Unmanned Surface Vehicle (MUSV) prototype, with options to procure up to eight
additional MUSVs.” additional MUSVs.”
The first five XLUUVs were funded in FY2019; they are being built by Boeing. The Navy wants procure additional The first five XLUUVs were funded in FY2019; they are being built by Boeing. The Navy wants procure additional
XLUUVs at a rate of two per year starting in FY2023. The Navy’s FY2021 budget submission does not include funding for XLUUVs at a rate of two per year starting in FY2023. The Navy’s FY2021 budget submission does not include funding for
the procurement of additional XLUUVs in FY2021 or FY2022. the procurement of additional XLUUVs in FY2021 or FY2022.
The Navy’s large UV programs pose a number of oversight issues for Congress, including issues relating to the analytical The Navy’s large UV programs pose a number of oversight issues for Congress, including issues relating to the analytical
basis for the more distributed fleet architecture; the Navy’s accelerated acquisition strategies for these programs; technical, basis for the more distributed fleet architecture; the Navy’s accelerated acquisition strategies for these programs; technical,
schedule, and cost risk in the programs; the proposed annual procurement rates for the programs; the industrial base schedule, and cost risk in the programs; the proposed annual procurement rates for the programs; the industrial base
implications of the programs; potential implications for miscalculation or escalation at sea; the personnel implications of the implications of the programs; potential implications for miscalculation or escalation at sea; the personnel implications of the
programs; and whether the Navy has accurately priced the work it is proposing to do in FY2021 on the programs. programs; and whether the Navy has accurately priced the work it is proposing to do in FY2021 on the programs.
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Figure 12. Boeing Echo Voyager UUV ......................................................................................... 19 Tables
Table 1. FY2021-FY2025 Requested and Programmed Funding for Large UVs ......................... 1619
Table 2. Congressional Action on FY2021 Large UV Funding Request ....................................... 2125

Contacts
Author Information ........................................................................................................................ 2932

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Navy Large Unmanned Surface and Undersea Vehicles

Introduction
This report provides background information and potential issues for Congress for three types of This report provides background information and potential issues for Congress for three types of
large unmanned vehicles (UVs) that the Navy wants to develop and procure in FY2021 and large unmanned vehicles (UVs) that the Navy wants to develop and procure in FY2021 and
beyond: beyond:
 Large Unmanned Surface Vehicles (LUSVs);  Large Unmanned Surface Vehicles (LUSVs);
 Medium Unmanned Surface Vehicles (MUSVs); and  Medium Unmanned Surface Vehicles (MUSVs); and
 Extra-large Unmanned Undersea Vehicles (XLUUVs).  Extra-large Unmanned Undersea Vehicles (XLUUVs).
The Navy wants to acquire these large UVs as part of an effort to shift the Navy to a new fleet The Navy wants to acquire these large UVs as part of an effort to shift the Navy to a new fleet
architecture (i.e., a new combination of ships and other platforms) that is more widely distributed architecture (i.e., a new combination of ships and other platforms) that is more widely distributed
than the Navy’s current fleet architecture. The Navy is requesting $579.9 million in FY2021 than the Navy’s current fleet architecture. The Navy is requesting $579.9 million in FY2021
research and development funding for these large UVs and their enabling technologies. research and development funding for these large UVs and their enabling technologies.
The issue for Congress is whether to approve, reject, or modify the Navy’s acquisition strategies The issue for Congress is whether to approve, reject, or modify the Navy’s acquisition strategies
and FY2021 funding requests for these large UVs. The Navy’s proposals for developing and and FY2021 funding requests for these large UVs. The Navy’s proposals for developing and
procuring them pose a number of oversight issues for Congress. Congress’s decisions on these procuring them pose a number of oversight issues for Congress. Congress’s decisions on these
issues could substantially affect Navy capabilities and funding requirements and the shipbuilding issues could substantially affect Navy capabilities and funding requirements and the shipbuilding
and UV industrial bases. and UV industrial bases.
In addition to the large UVs covered in this report, the Navy also wants to develop and procure In addition to the large UVs covered in this report, the Navy also wants to develop and procure
smaller USVs and UUVs, as well as unmanned aerial vehicles (UAVs) of various sizes. Other smaller USVs and UUVs, as well as unmanned aerial vehicles (UAVs) of various sizes. Other
U.S. military services are developing, procuring, and operating their own types of UVs. Separate U.S. military services are developing, procuring, and operating their own types of UVs. Separate
CRS reports address some of these efforts.1 CRS reports address some of these efforts.1
Background
Navy USVs and UUVs in General
UVs in the Navy
UVs are one of several new capabilities—along with directed-energy weapons, hypersonic UVs are one of several new capabilities—along with directed-energy weapons, hypersonic
weapons, artificial intelligence, and cyber capabilities—that the Navy says it is pursuing to meet weapons, artificial intelligence, and cyber capabilities—that the Navy says it is pursuing to meet
emerging military challenges, particularly from China.2 UVs can be equipped with sensors, emerging military challenges, particularly from China.2 UVs can be equipped with sensors,
weapons, or other payloads, and can be operated remotely, semi-autonomously, or (with weapons, or other payloads, and can be operated remotely, semi-autonomously, or (with
technological advancements) autonomously.3 They can be individually less expensive to procure technological advancements) autonomously.3 They can be individually less expensive to procure

1 See, for example, CRS Report R45519, 1 See, for example, CRS Report R45519, The Army’s Optionally Manned Fighting Vehicle (OMFV) Program:
Background and Issues for Congress, by Andrew Feickert, and CRS Report R45392, , by Andrew Feickert, and CRS Report R45392, U.S. Ground Forces Robotics and
Autonomous Systems (RAS) and Artificial Intelligence (AI): Considerations for Congress, coordinated by Andrew , coordinated by Andrew
Feickert. Feickert.
2 See, for example, Department of the Navy, 2 See, for example, Department of the Navy, Highlights of the Department of the Navy FY 2021 Budget, inside front , inside front
cover (“The Bottom Line”). For a CRS report on Navy lasers, electromagnetic railguns, and the gun-launched guided cover (“The Bottom Line”). For a CRS report on Navy lasers, electromagnetic railguns, and the gun-launched guided
projectile (also known as the hypervelocity projectile), see CRS Report R44175, projectile (also known as the hypervelocity projectile), see CRS Report R44175, Navy Lasers, Railgun, and Gun-
Launched Guided Projectile: Background and Issues for Congress, by Ronald O'Rourke. For a CRS report on , by Ronald O'Rourke. For a CRS report on
advanced military technologies, see CRS In Focus IF11105, advanced military technologies, see CRS In Focus IF11105, Defense Primer: Emerging Technologies, by Kelley M. , by Kelley M.
Sayler. Sayler.
3 For more on autonomous UVs, see CRS In Focus IF11150, 3 For more on autonomous UVs, see CRS In Focus IF11150, Defense Primer: U.S. Policy on Lethal Autonomous
Weapon Systems, by Kelley M. Sayler. , by Kelley M. Sayler.
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than manned ships and aircraft because their designs do not need to incorporate spaces and than manned ships and aircraft because their designs do not need to incorporate spaces and
support equipment for onboard human operators. UVs can be particularly suitable for long-support equipment for onboard human operators. UVs can be particularly suitable for long-
duration missions that might tax the physical endurance of onboard human operators, or missions duration missions that might tax the physical endurance of onboard human operators, or missions
that pose a high risk of injury, death, or capture of onboard human operators. Consequently UVs that pose a high risk of injury, death, or capture of onboard human operators. Consequently UVs
are sometimes said to be particularly suitable for so-called “three D” missions, meaning missions are sometimes said to be particularly suitable for so-called “three D” missions, meaning missions
that are “dull, dirty, or dangerous.”4 that are “dull, dirty, or dangerous.”4
The Navy has been developing and experimenting with various types of UVs for many years, and The Navy has been developing and experimenting with various types of UVs for many years, and
has transitioned some of these efforts (particularly those for UAVs) into procurement programs. has transitioned some of these efforts (particularly those for UAVs) into procurement programs.
The Department of the Navy states, for example, that its inventory of 4,094 aircraft at the end of The Department of the Navy states, for example, that its inventory of 4,094 aircraft at the end of
FY2019 included 99 UAVs, that its projected inventory of 3,912 aircraft at the end of FY2020 FY2019 included 99 UAVs, that its projected inventory of 3,912 aircraft at the end of FY2020
will include 45 UVs, and that its projected inventory of 4,075 aircraft at the end of FY2021 will will include 45 UVs, and that its projected inventory of 4,075 aircraft at the end of FY2021 will
include 57 UVs.5 Even so, some observers have occasionally expressed dissatisfaction with what include 57 UVs.5 Even so, some observers have occasionally expressed dissatisfaction with what
they view as the Navy’s slow pace in transitioning UV development efforts into programs for they view as the Navy’s slow pace in transitioning UV development efforts into programs for
procuring UVs in quantity and integrating them into the operational fleet. procuring UVs in quantity and integrating them into the operational fleet.
Navy USV and UUV Categories
As shown i As shown in Figure 1 anand Figure 2, the Navy organizes its USV acquisition programs into four the Navy organizes its USV acquisition programs into four
size-based categories that the Navy calls large, medium, small, and very small, and its UUV size-based categories that the Navy calls large, medium, small, and very small, and its UUV
acquisition programs similarly into four size-based categories that the Navy calls extra-large, acquisition programs similarly into four size-based categories that the Navy calls extra-large,
large, medium, and small. The large UVs discussed in this CRS report fall into the top two USV large, medium, and small. The large UVs discussed in this CRS report fall into the top two USV
categories icategories in Figure 1 and the top UUV category iand the top UUV category in Figure 2.
The smaller UVs shown in the other categories of The smaller UVs shown in the other categories of Figure 1 and Figure 2, which are not covered hich are not covered
in this report, can be deployed from manned Navy ships and submarines to extend the operational in this report, can be deployed from manned Navy ships and submarines to extend the operational
reach of those ships and submarines. The large UVs covered in this CRS report, in contrast, are reach of those ships and submarines. The large UVs covered in this CRS report, in contrast, are
more likely to be deployed directly from pier to perform missions that might otherwise be more likely to be deployed directly from pier to perform missions that might otherwise be
assigned to manned ships and submarines. assigned to manned ships and submarines.
Large UVs and Navy Ship Count
Because the large UVs covered in this report can be deployed directly from pier to perform Because the large UVs covered in this report can be deployed directly from pier to perform
missions that might otherwise be assigned to manned ships and submarines, some observers have missions that might otherwise be assigned to manned ships and submarines, some observers have
a raised a question as to whether the large UVs covered in this report should be included in the a raised a question as to whether the large UVs covered in this report should be included in the
top-level count of the number of ships in the Navy. Navy officials state that they have not yet top-level count of the number of ships in the Navy. Navy officials state that they have not yet
decided whether to modify the top-level count of the number of ships in the Navy to include these decided whether to modify the top-level count of the number of ships in the Navy to include these
large UVs.6 large UVs.6

4 See, for example, Ann Diab, “Drones Perform the Dull, Dirty, or Dangerous Work,” Tech.co, November 12, 2014; 4 See, for example, Ann Diab, “Drones Perform the Dull, Dirty, or Dangerous Work,” Tech.co, November 12, 2014;
Bonnie Robinson, “Dull, Dirty, Dangerous Mission? Send in the Robot Vehicle,” U.S. Army, August 20, 2015; Bonnie Robinson, “Dull, Dirty, Dangerous Mission? Send in the Robot Vehicle,” U.S. Army, August 20, 2015;
Bernard Marr, “The 4 Ds Of Robotization: Dull, Dirty, Dangerous And Dear,” Bernard Marr, “The 4 Ds Of Robotization: Dull, Dirty, Dangerous And Dear,” Forbes, October 16, 2017. , October 16, 2017.
5 Department of the Navy, 5 Department of the Navy, Highlights of the Department of the Navy FY 2021 Budget, Figure 3.7 on page 3-7. , Figure 3.7 on page 3-7.
6 For additional discussion of this question, see CRS Report RL32665, 6 For additional discussion of this question, see CRS Report RL32665, Navy Force Structure and Shipbuilding Plans:
Background and Issues for Congress, by Ronald O'Rourke. , by Ronald O'Rourke.
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Figure 1. Navy USV Systems Vision

Source: Slide 3 of briefing by Captain Pete Small, Program Manager, Unmanned Maritime Systems (PMS 406), Slide 3 of briefing by Captain Pete Small, Program Manager, Unmanned Maritime Systems (PMS 406),
entitled “Unmanned Maritime Systems Update,” January 15, 2019, accessed May 22, 2019, at entitled “Unmanned Maritime Systems Update,” January 15, 2019, accessed May 22, 2019, at
https://www.navsea.navy.mil/Portals/103/Documents/Exhibits/SNA2019/UnmannedMaritimeSys-Small.pdf?ver=https://www.navsea.navy.mil/Portals/103/Documents/Exhibits/SNA2019/UnmannedMaritimeSys-Small.pdf?ver=
2019-01-15-165105-297. 2019-01-15-165105-297.
Figure 2. Navy UUV Systems Vision

Source: Slide 2 of briefing by Captain Pete Small, Program Manager, Unmanned Maritime Systems (PMS 406), Slide 2 of briefing by Captain Pete Small, Program Manager, Unmanned Maritime Systems (PMS 406),
entitled “Unmanned Maritime Systems Update,” January 15, 2019, accessed May 22, 2019, at entitled “Unmanned Maritime Systems Update,” January 15, 2019, accessed May 22, 2019, at
https://www.navsea.navy.mil/Portals/103/Documents/Exhibits/SNA2019/UnmannedMaritimeSys-Small.pdf?ver=https://www.navsea.navy.mil/Portals/103/Documents/Exhibits/SNA2019/UnmannedMaritimeSys-Small.pdf?ver=
2019-01-15-165105-297. 2019-01-15-165105-297.
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Part of More Distributed Navy Fleet Architecture
The Navy wants to acquire the large UVs covered in this report as part of an effort to shift the The Navy wants to acquire the large UVs covered in this report as part of an effort to shift the
Navy to a new fleet architecture that is more widely distributed than the Navy’s current Navy to a new fleet architecture that is more widely distributed than the Navy’s current
architecture. Compared to the current fleet architecture, this more distributed architecture is to architecture. Compared to the current fleet architecture, this more distributed architecture is to
include proportionately fewer large surface combatants (or LSCs, meaning cruisers and include proportionately fewer large surface combatants (or LSCs, meaning cruisers and
destroyers), proportionately more small surface combatants (or SSCs, meaning frigates and destroyers), proportionately more small surface combatants (or SSCs, meaning frigates and
Littoral Combat Ships), and the addition of significant numbers of large UVs. Littoral Combat Ships), and the addition of significant numbers of large UVs.
Figure 3 provides, for the surface combatant portion of the Navy,7 a conceptual comparison of provides, for the surface combatant portion of the Navy,7 a conceptual comparison of
the current fleet architecture (shown on the left as the “ship centric force”) and the new, more the current fleet architecture (shown on the left as the “ship centric force”) and the new, more
distributed architecture (shown on the right as the “distributed/nodal force”). The figure does not distributed architecture (shown on the right as the “distributed/nodal force”). The figure does not
depict the entire surface combatant fleet, but rather a representative portion of it. depict the entire surface combatant fleet, but rather a representative portion of it.
Figure 3. Navy Briefing Slide on Surface Combatant Force Architecture
Each sphere represents a ship or a USV Each sphere represents a ship or a USV

Source: Il ustration accompanying Megan Eckstein, “Sea Hunter Unmanned Ship Continues Autonomy Testing Il ustration accompanying Megan Eckstein, “Sea Hunter Unmanned Ship Continues Autonomy Testing
as NAVSEA Moves Forward with Draft RFP,” as NAVSEA Moves Forward with Draft RFP,” USNI News, April 29, 2019. The il ustration was also included as , April 29, 2019. The il ustration was also included as
Slide 2 in a Navy briefing entitled “Designing & Building the Surface Fleet: Unmanned and Small Combatants,” by Slide 2 in a Navy briefing entitled “Designing & Building the Surface Fleet: Unmanned and Small Combatants,” by
Rear Admiral Casey Moton at a June 20, 2019, conference of the American Society of Naval Engineers (ASNE). Rear Admiral Casey Moton at a June 20, 2019, conference of the American Society of Naval Engineers (ASNE).
Notes: Each sphere represents a ship or a USV. LSC means large surface combatant (i.e., cruiser or destroyer), Each sphere represents a ship or a USV. LSC means large surface combatant (i.e., cruiser or destroyer),
and SSC means small surface combatant (i.e., frigate or Littoral Combat Ship). As shown in the color coding, the and SSC means small surface combatant (i.e., frigate or Littoral Combat Ship). As shown in the color coding, the
LSCs and SSCs are equipped with a combination of sensors (green), command and control (C2) equipment (red), LSCs and SSCs are equipped with a combination of sensors (green), command and control (C2) equipment (red),

7 Other major parts of the Navy include submarines, aircraft carriers, amphibious ships, logistics (resupply) ships, and 7 Other major parts of the Navy include submarines, aircraft carriers, amphibious ships, logistics (resupply) ships, and
support ships. support ships.
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and payloads other than sensors and C2 equipment, meaning principally weapons (blue). LUSVs and MUSVs, in and payloads other than sensors and C2 equipment, meaning principally weapons (blue). LUSVs and MUSVs, in
contrast, are equipped primarily with weapons (blue) or sensors (green). contrast, are equipped primarily with weapons (blue) or sensors (green).
In the figure, each sphere represents a manned ship or USV. (Since the illustration focuses on the In the figure, each sphere represents a manned ship or USV. (Since the illustration focuses on the
surface combatant force, it does not include UUVs.) As shown in the color coding, under both the surface combatant force, it does not include UUVs.) As shown in the color coding, under both the
current fleet architecture and the more distributed architecture, the manned ships (i.e., the LSCs current fleet architecture and the more distributed architecture, the manned ships (i.e., the LSCs
and SSCs) are equipped with a combination of sensors (green), command and control (C2) and SSCs) are equipped with a combination of sensors (green), command and control (C2)
equipment (red), and payloads other than sensors and C2 equipment, meaning principally equipment (red), and payloads other than sensors and C2 equipment, meaning principally
weapons (blue). weapons (blue).
Under the more distributed architecture, the manned ships would be on average smaller (because Under the more distributed architecture, the manned ships would be on average smaller (because
a greater share of them would be SSCs), and this would be possible because some of the surface a greater share of them would be SSCs), and this would be possible because some of the surface
combatant force’s weapons and sensors would be shifted from the manned ships to USVs, with combatant force’s weapons and sensors would be shifted from the manned ships to USVs, with
weapon-equipped LUSVs acting as adjunct weapon magazines and sensor-equipped MUSVs weapon-equipped LUSVs acting as adjunct weapon magazines and sensor-equipped MUSVs
contributing to the fleet’s sensor network. contributing to the fleet’s sensor network.
As shown in As shown in Figure 3, under the Navy’s current surface combatant force architecture, there are to der the Navy’s current surface combatant force architecture, there are to
be 20 LSCs for every 10 SSCs (i.e., a 2:1 ratio of LSCs to SSCs), with no significant contribution be 20 LSCs for every 10 SSCs (i.e., a 2:1 ratio of LSCs to SSCs), with no significant contribution
from LUSVs and MUSVs. This is consistent with the Navy’s current force-level objective, which from LUSVs and MUSVs. This is consistent with the Navy’s current force-level objective, which
calls for achieving a 355-ship fleet that includes 104 LSCs and 52 SSCs (a 2:1 ratio). Under the calls for achieving a 355-ship fleet that includes 104 LSCs and 52 SSCs (a 2:1 ratio). Under the
more distributed architecture, the ratio of LSCs to SSCs would be reversed, with 10 LSCs for more distributed architecture, the ratio of LSCs to SSCs would be reversed, with 10 LSCs for
every 20 SSCs (a 1:2 ratio), and there would also now be 30 LUSVs and 40 MUSVs. A January every 20 SSCs (a 1:2 ratio), and there would also now be 30 LUSVs and 40 MUSVs. A January
15, 2019, press report states 15, 2019, press report states
The Navy plans to spend this year taking the first few steps into a markedly different future, The Navy plans to spend this year taking the first few steps into a markedly different future,
which, if it comes to pass, will upend how the fleet has fought since the Cold War. And it which, if it comes to pass, will upend how the fleet has fought since the Cold War. And it
all starts with something that might seem counterintuitive: It’s looking to get smaller. all starts with something that might seem counterintuitive: It’s looking to get smaller.
“Today, I have a requirement for 104 large surface combatants in the force structure “Today, I have a requirement for 104 large surface combatants in the force structure
assessment; [and] I have [a requirement for] 52 small surface combatants,” said Surface assessment; [and] I have [a requirement for] 52 small surface combatants,” said Surface
Warfare Director Rear Adm. Ronald Boxall. “That’s a little upside down. Should I push Warfare Director Rear Adm. Ronald Boxall. “That’s a little upside down. Should I push
out here and have more small platforms? I think the future fleet architecture study has out here and have more small platforms? I think the future fleet architecture study has
intimated ‘yes,’ and our war gaming shows there is value in that.”8 intimated ‘yes,’ and our war gaming shows there is value in that.”8
Another way of summarizing Another way of summarizing Figure 3 would be to say that the surface combatant force would be to say that the surface combatant force
architecture (reading vertically down the figure) would change from 20+10+0+0 (i.e., a total of architecture (reading vertically down the figure) would change from 20+10+0+0 (i.e., a total of
30 surface combatant platforms, all manned, and a platform ratio of 2-1-0-0) for a given portion 30 surface combatant platforms, all manned, and a platform ratio of 2-1-0-0) for a given portion
of the surface combatant force, to 10+20+30+40 (i.e., a total of 100 surface combatant platforms, of the surface combatant force, to 10+20+30+40 (i.e., a total of 100 surface combatant platforms,
70 of which would be LUSVs and MUSVs, and a platform ration of 1-2-3-4) for a given portion 70 of which would be LUSVs and MUSVs, and a platform ration of 1-2-3-4) for a given portion
of the surface combatant force. The Navy refers to the more distributed architecture’s of the surface combatant force. The Navy refers to the more distributed architecture’s
combination of LSCs, SSCs, LUSVs, and MUSVs as the Future Surface Combatant Force combination of LSCs, SSCs, LUSVs, and MUSVs as the Future Surface Combatant Force
(FSCF). (FSCF).
Figure 3 is conceptual, so the platform ratios for the more distributed architecture should be is conceptual, so the platform ratios for the more distributed architecture should be
understood as notional or approximate rather than exact. The point of the figure is not that understood as notional or approximate rather than exact. The point of the figure is not that
relative platform numbers under the more distributed architecture would change to the exact relative platform numbers under the more distributed architecture would change to the exact
ratios shown in the figure, but that they would evolve over time toward something broadly ratios shown in the figure, but that they would evolve over time toward something broadly
resembling those ratios. resembling those ratios.
Some observers have long urged the Navy to shift to a more distributed fleet architecture, on the Some observers have long urged the Navy to shift to a more distributed fleet architecture, on the
grounds that the Navy’s current architecture—which concentrates much of the fleet’s capability grounds that the Navy’s current architecture—which concentrates much of the fleet’s capability
into a relatively limited number of individually larger and more expensive surface ships—is into a relatively limited number of individually larger and more expensive surface ships—is

8 David B. Larter, “US Navy Moves Toward Unleashing Killer Robot Ships on the World’s Oceans,” 8 David B. Larter, “US Navy Moves Toward Unleashing Killer Robot Ships on the World’s Oceans,” Defense News, ,
January 15, 2019. January 15, 2019.
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increasingly vulnerable to attack by the improving maritime anti-access/area-denial (A2/AD) increasingly vulnerable to attack by the improving maritime anti-access/area-denial (A2/AD)
capabilities (particularly anti-ship missiles and their supporting detection and targeting systems) capabilities (particularly anti-ship missiles and their supporting detection and targeting systems)
of potential adversaries, particularly China.9 Shifting to a more distributed architecture, these of potential adversaries, particularly China.9 Shifting to a more distributed architecture, these
observers have argued, would observers have argued, would
 complicate an adversary’s targeting challenge by presenting the adversary with a  complicate an adversary’s targeting challenge by presenting the adversary with a
larger number of Navy units to detect, identify, and track; larger number of Navy units to detect, identify, and track;
 reduce the loss in aggregate Navy capability that would result from the  reduce the loss in aggregate Navy capability that would result from the
destruction of an individual Navy platform; destruction of an individual Navy platform;
 give U.S. leaders the option of deploying USVs and UUVs in wartime to sea  give U.S. leaders the option of deploying USVs and UUVs in wartime to sea
locations that would be tactically advantageous but too risky for manned ships; locations that would be tactically advantageous but too risky for manned ships;
and and
 increase the modularity and reconfigurability of the fleet for adapting to changing  increase the modularity and reconfigurability of the fleet for adapting to changing
mission needs.10 mission needs.10
For a number of years, Navy leaders acknowledged the views of those observers but continued to For a number of years, Navy leaders acknowledged the views of those observers but continued to
support the current fleet architecture. More recently, however, Navy have shifted their thinking, support the current fleet architecture. More recently, however, Navy have shifted their thinking,
with comments from Navy officials like the one quoted above and Navy briefing slides like with comments from Navy officials like the one quoted above and Navy briefing slides like
Figure 3 indicating that Navy leaders now support moving the fleet to a more distributed indicating that Navy leaders now support moving the fleet to a more distributed
architecture. The views of Navy leaders appear to have shifted in favor of a more distributed architecture. The views of Navy leaders appear to have shifted in favor of a more distributed
architecture because they now appear to believe that such an architecture will be architecture because they now appear to believe that such an architecture will be
 increasingly needed—as the observers have long argued—to respond effectively  increasingly needed—as the observers have long argued—to respond effectively
to the improving maritime A2/AD capabilities of other countries, particularly to the improving maritime A2/AD capabilities of other countries, particularly
China; China;
 technically feasible as a result of advances in technologies for UVs and for  technically feasible as a result of advances in technologies for UVs and for
networking widely distributed maritime forces that include significant numbers networking widely distributed maritime forces that include significant numbers
of UVs; and of UVs; and
 no more expensive, and possibly less expensive, than the current architecture.  no more expensive, and possibly less expensive, than the current architecture.
The more distributed architecture that Navy leaders now appear to support may differ in its The more distributed architecture that Navy leaders now appear to support may differ in its
details from distributed architectures that the observers have been advocating, but the general idea details from distributed architectures that the observers have been advocating, but the general idea
of shifting to a more distributed architecture, and of using large UVs as a principal means of of shifting to a more distributed architecture, and of using large UVs as a principal means of
achieving that, appears to be similar. The Navy’s FY2020 30-year shipbuilding plan mentions a achieving that, appears to be similar. The Navy’s FY2020 30-year shipbuilding plan mentions a
new overarching operational concept for the Navy (i.e., a new general concept for how to employ new overarching operational concept for the Navy (i.e., a new general concept for how to employ
Navy forces) called Distributed Maritime Operations (DMO).11 A December 2018 document from Navy forces) called Distributed Maritime Operations (DMO).11 A December 2018 document from
the Chief of Naval Operations states that the Navy will “continue to mature the Distributed the Chief of Naval Operations states that the Navy will “continue to mature the Distributed
Maritime Operations (DMO) concept and key supporting concepts” and “design and implement a Maritime Operations (DMO) concept and key supporting concepts” and “design and implement a
comprehensive operational architecture to support DMO.”12 While Navy officials have provided comprehensive operational architecture to support DMO.”12 While Navy officials have provided
few details in public about DMO,13 the Navy does state in its FY2021 budget submission that few details in public about DMO,13 the Navy does state in its FY2021 budget submission that

9 For more on China’s maritime A2/AD capabilities, see CRS Report RL33153, 9 For more on China’s maritime A2/AD capabilities, see CRS Report RL33153, China Naval Modernization:
Implications for U.S. Navy Capabilities—Background and Issues for Congress, by Ronald O'Rourke. , by Ronald O'Rourke.
10 For additional discussion, see CRS Report RL32665, 10 For additional discussion, see CRS Report RL32665, Navy Force Structure and Shipbuilding Plans: Background and
Issues for Congress, by Ronald O'Rourke. , by Ronald O'Rourke.
11 U.S. Navy, 11 U.S. Navy, Report to Congress on the Annual Long-Range Plan for Construction of Naval Vessels for Fiscal Year
2020, March 2019, pp. 3, 4, 7, 8, 15, 17, 24. , March 2019, pp. 3, 4, 7, 8, 15, 17, 24.
12 U.S. Navy, Chief of Naval Operations, 12 U.S. Navy, Chief of Naval Operations, A Design for Maintaining Maritime Superiority, Version 2.0, December 2018, , December 2018,
pp. 8, 10. pp. 8, 10.
13 Then-Chief of Naval Operations Admiral John Richardson, in explaining DMO, stated in December 2018 that “Our 13 Then-Chief of Naval Operations Admiral John Richardson, in explaining DMO, stated in December 2018 that “Our
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“MUSV and LUSV are key enablers of the Navy’s Distributed Maritime Operations (DMO) “MUSV and LUSV are key enablers of the Navy’s Distributed Maritime Operations (DMO)
concept, which includes being able to forward deploy and team with individual manned concept, which includes being able to forward deploy and team with individual manned
combatants or augment battle groups. Fielding of MUSV and LUSV will provide the Navy combatants or augment battle groups. Fielding of MUSV and LUSV will provide the Navy
increased capability and necessary capacity at lower procurement and sustainment costs, reduced increased capability and necessary capacity at lower procurement and sustainment costs, reduced
risk to sailors and increased readiness by offloading missions from manned combatants.”14 risk to sailors and increased readiness by offloading missions from manned combatants.”14
Accelerated Acquisition Strategies and Enabling Technologies
The Navy wants to employ accelerated acquisition strategies for procuring large UVs, so as to get The Navy wants to employ accelerated acquisition strategies for procuring large UVs, so as to get
them into service more quickly. The Navy’s desire to employ these accelerated acquisition them into service more quickly. The Navy’s desire to employ these accelerated acquisition
strategies can be viewed as an expression of the urgency that the Navy attaches to fielding large strategies can be viewed as an expression of the urgency that the Navy attaches to fielding large
UVs for meeting future military challenges from countries such as China.15 UVs for meeting future military challenges from countries such as China.15
The LUSV and MUSV programs are building on USV development work done by the Strategic The LUSV and MUSV programs are building on USV development work done by the Strategic
Capabilities Office (SCO) within the Office of the Secretary of Defense (OSD). SCO’s effort to Capabilities Office (SCO) within the Office of the Secretary of Defense (OSD). SCO’s effort to
develop USVs is called Ghost Fleet, and its LUSV development effort within Ghost Fleet is develop USVs is called Ghost Fleet, and its LUSV development effort within Ghost Fleet is
called Overlord. called Overlord.
As shown i As shown in Figure 4, the Navy has identified five key enabling groups of technologies for its the Navy has identified five key enabling groups of technologies for its
USV and UUV programs.16 Given limitations on underwater communications (most radio-USV and UUV programs.16 Given limitations on underwater communications (most radio-
frequency electromagnetic waves do not travel far underwater), technologies for autonomous frequency electromagnetic waves do not travel far underwater), technologies for autonomous
operations (such as artificial intelligence) will be particularly important for the XLUUV program operations (such as artificial intelligence) will be particularly important for the XLUUV program
(and other UUV programs).17 (and other UUV programs).17
In May 2019, the Navy established a surface development squadron to help develop operational In May 2019, the Navy established a surface development squadron to help develop operational
concepts for LUSVs and MUSVs. The squadron will initially consist of a Zumwalt (DDG-1000) concepts for LUSVs and MUSVs. The squadron will initially consist of a Zumwalt (DDG-1000)
class destroyer and one Sea Hunter prototype medium displacement USVclass destroyer and one Sea Hunter prototype medium displacement USV (Figure 5). A second . A second
Sea Hunter prototype will reportedly be added around the end of FY2020, and LUSVs and Sea Hunter prototype will reportedly be added around the end of FY2020, and LUSVs and
MUSVs will then be added as they become available.18 MUSVs will then be added as they become available.18

fundamental force element right now in many instances is the [individual] carrier strike group. We’re going to scale up fundamental force element right now in many instances is the [individual] carrier strike group. We’re going to scale up
so our fundamental force element for fighting is at the fleet[-wide] level, and the [individual] strike groups plug into so our fundamental force element for fighting is at the fleet[-wide] level, and the [individual] strike groups plug into
those [larger] numbered fleets. And they will be, the strike groups and the fleet together, will be operating in a those [larger] numbered fleets. And they will be, the strike groups and the fleet together, will be operating in a
distributed maritime operations way.” (Chief of Naval Operations Admiral John Richardson, as quoted in Megan distributed maritime operations way.” (Chief of Naval Operations Admiral John Richardson, as quoted in Megan
Eckstein, “Navy Planning for Gray-Zone Conflict; Finalizing Distributed Maritime Operations for High-End Fight,” Eckstein, “Navy Planning for Gray-Zone Conflict; Finalizing Distributed Maritime Operations for High-End Fight,”
USNI News, December 19, 2018.) , December 19, 2018.)
14 14 Department of Defense Fiscal Year (FY) 2021 Budget Estimates, Navy Justification Book Volume 2 of 5, Research,
Development, Test & Evaluation, February 2020, PDF page 90 of 1,538. The statement also appears on PDF page 324 , February 2020, PDF page 90 of 1,538. The statement also appears on PDF page 324
of 1,538. See also Kevin Eyer and Steve McJessy, “Operationalizing Distributed Maritime Operations,” Center for of 1,538. See also Kevin Eyer and Steve McJessy, “Operationalizing Distributed Maritime Operations,” Center for
International Maritime Security (CIMSEC), March 5, 2019; Christopher H. Popa et al., International Maritime Security (CIMSEC), March 5, 2019; Christopher H. Popa et al., Distributed Maritime
Operations and Unmanned Systems Tactical Employment, Naval Postgraduate School, June 2018, 171 pp. (Systems , Naval Postgraduate School, June 2018, 171 pp. (Systems
Engineering Capstone Report); Lyla Englehorn, Engineering Capstone Report); Lyla Englehorn, Distributed Maritime Operations (DMO) Warfare Innovation
Continuum (WIC) Workshop September 2017 After Action Report, Naval Postgraduate School, December 2017, 99 pp. , Naval Postgraduate School, December 2017, 99 pp.
15 A number of other DOD acquisition programs are also employing rapid or accelerated acquisition strategies of one 15 A number of other DOD acquisition programs are also employing rapid or accelerated acquisition strategies of one
kind or another, in some cases using special acquisition authorities that Congress has granted to DOD. For additional kind or another, in some cases using special acquisition authorities that Congress has granted to DOD. For additional
discussion, see CRS Report R45068, discussion, see CRS Report R45068, Acquisition Reform in the FY2016-FY2018 National Defense Authorization Acts
(NDAAs), by Moshe Schwartz and Heidi M. Peters. , by Moshe Schwartz and Heidi M. Peters.
16 For additional discussion of some of the enabling technologies shown in 16 For additional discussion of some of the enabling technologies shown in Figure 4, see Pete Small, “Empowering the see Pete Small, “Empowering the
Unmanned Maritime Revolution,” Undersea Warfare, Spring 2019: 12-13. Unmanned Maritime Revolution,” Undersea Warfare, Spring 2019: 12-13.
17 For more on the use of artificial intelligence in defense programs, see CRS Report R45178, 17 For more on the use of artificial intelligence in defense programs, see CRS Report R45178, Artificial Intelligence
and National Security, by Kelley M. Sayler. , by Kelley M. Sayler.
18 See, for example, Megan Eckstein, “Navy Stands Up Surface Development Squadron for DDG-1000, Unmanned 18 See, for example, Megan Eckstein, “Navy Stands Up Surface Development Squadron for DDG-1000, Unmanned
Experimentation,” Experimentation,” USNI News, May 22, 2019; David B. Larter, “With Billions Planned in Funding, the US Navy , May 22, 2019; David B. Larter, “With Billions Planned in Funding, the US Navy
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Figure 4. Enabling Technologies for USVs and UUVs

Source: Slide 4 of briefing by Captain Pete Small, Program Manager, Unmanned Maritime Systems (PMS 406), Slide 4 of briefing by Captain Pete Small, Program Manager, Unmanned Maritime Systems (PMS 406),
entitled “Unmanned Maritime Systems Update,” January 15, 2019, accessed May 22, 2019, at entitled “Unmanned Maritime Systems Update,” January 15, 2019, accessed May 22, 2019, at
https://www.navsea.navy.mil/Portals/103/Documents/Exhibits/SNA2019/UnmannedMaritimeSys-Small.pdf?ver=https://www.navsea.navy.mil/Portals/103/Documents/Exhibits/SNA2019/UnmannedMaritimeSys-Small.pdf?ver=
2019-01-15-165105-297. 2019-01-15-165105-297.
LUSV, MUSV, and LXUUV Programs in Brief
LUSV Program
Overview The Navy envisions LUSVs as being 200 feet to 300 feet in length and having full load The Navy envisions LUSVs as being 200 feet to 300 feet in length and having full load
displacements of 1,000 tons to 2,000 tons, which would make them the size of a corvettedisplacements of 1,000 tons to 2,000 tons, which would make them the size of a corvette. Figure
6 shows a detail from a Navy briefing slide showing images of prototype LUSVs and silhouettes shows a detail from a Navy briefing slide showing images of prototype LUSVs and silhouettes
of a notional LUSV and a notional MUSV.of a notional LUSV and a notional MUSV. ~~In unclassified presentations on the program, the Navy~~
~~has used images of offshore support ships used by the oil and gas industry to illustrate the kinds~~
~~of ships that might be~~ Figure 7 and Figure 8 show ships that have been used used as LUSV prototypes. In unclassified presentations on the program, the Navy has used images of ~~as the basis for LUSVs.19~~
~~The Navy wants LUSVs to be low-cost, high-endurance, reconfigurable ships based on~~
~~commercial ship designs, with ample capacity for carrying various modular payloads—~~

Charts Its Unmanned Future,” Charts Its Unmanned Future,” Defense News, May 6, 2019. See also Michael Fabey, “USN Seeks Path for Unmanned , May 6, 2019. See also Michael Fabey, “USN Seeks Path for Unmanned
Systems Operational Concepts,” Systems Operational Concepts,” Jane’s Navy International, May 16, 2019. , May 16, 2019.
~~19 Sam LaGrone, “Navy Wants 10-Ship Unmanned ‘Ghost Fleet’ to Supplement Manned Force,” USNI News, March~~
~~13, 2019.~~
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Congressional Research Service 8 Navy Large Unmanned Surface and Undersea Vehicles offshore support ships used by the oil and gas industry to illustrate the kinds of ships that might be used as the basis for LUSVs.19 The Navy wants LUSVs to be low-cost, high-endurance, reconfigurable ships based on commercial ship designs, with ample capacity for carrying various modular payloads—particularly anti-surface warfare (ASuW) and strike payloads, meaning principally anti-ship and particularly anti-surface warfare (ASuW) and strike payloads, meaning principally anti-ship and
land-attack missiles.20 land-attack missiles.20
Figure 5. Sea Hunter Prototype Medium Displacement USV

Source: Photograph credited to U.S. Navy accompanying John Grady, “Panel: Unmanned Surface Vessels Wil be Photograph credited to U.S. Navy accompanying John Grady, “Panel: Unmanned Surface Vessels Wil be
Significant Part of Future U.S. Fleet,” Significant Part of Future U.S. Fleet,” USNI News, April 15, 2019. , April 15, 2019.
The Navy wants LUSVs to be capable of operating with human operators in the loop,21 or semi- The Navy wants LUSVs to be capable of operating with human operators in the loop,21 or semi-
autonomously (with human operators on the loop),22 or fully autonomously, and to be capable of autonomously (with human operators on the loop),22 or fully autonomously, and to be capable of
operating either independently or in conjunction with manned surface combatants. Although operating either independently or in conjunction with manned surface combatants. Although
referred to as UVs, LUSVs might be more accurately described as optionally or lightly manned referred to as UVs, LUSVs might be more accurately described as optionally or lightly manned
ships, because they might sometimes have a few onboard crew members, particularly in the ships, because they might sometimes have a few onboard crew members, particularly in the
nearer term as the Navy works out LUSV enabling technologies and operational concepts.23 nearer term as the Navy works out LUSV enabling technologies and operational concepts.23
~~LUSVs are to feature both built-in capabilities and an ability to accept modular payloads, and are~~
~~to use existing Navy sensors and weapon launchers.~~

19 Sam LaGrone, “Navy Wants 10-Ship Unmanned ‘Ghost Fleet’ to Supplement Manned Force,” USNI News, March 13, 2019. 20 The Navy states that the LUSV “provides distributed fires” and will include an “offensive missile capability.” See 20 The Navy states that the LUSV “provides distributed fires” and will include an “offensive missile capability.” See
Slide 5 of briefing by Captain Pete Small, Program Manager, Unmanned Maritime Systems (PMS 406), entitled Slide 5 of briefing by Captain Pete Small, Program Manager, Unmanned Maritime Systems (PMS 406), entitled
“Unmanned Maritime Systems Update,” January 15, 2019, accessed May 22, 2019, at https://www.navsea.navy.mil/“Unmanned Maritime Systems Update,” January 15, 2019, accessed May 22, 2019, at https://www.navsea.navy.mil/
Portals/103/Documents/Exhibits/SNA2019/UnmannedMaritimeSys-Small.pdf?ver=2019-01-15-165105-297. Portals/103/Documents/Exhibits/SNA2019/UnmannedMaritimeSys-Small.pdf?ver=2019-01-15-165105-297.
21 The Navy states that having the operator in the loop can be understood as referring to continuous or near-continuous 21 The Navy states that having the operator in the loop can be understood as referring to continuous or near-continuous
observation and/or control of the UV by the operator. (Source: Navy email to CRS dated June 4, 2019.) observation and/or control of the UV by the operator. (Source: Navy email to CRS dated June 4, 2019.)
22 The Navy states that having the operator on the loop can be understood as referring to a UV that is operating semi- 22 The Navy states that having the operator on the loop can be understood as referring to a UV that is operating semi-
autonomously, with the UV controlling its own actions much of the time, but with a human operator potentially autonomously, with the UV controlling its own actions much of the time, but with a human operator potentially
intervening from time to time in response to either a prompt from the UV or data sent from the UV or other sources. intervening from time to time in response to either a prompt from the UV or data sent from the UV or other sources.
(Source: Navy email to CRS dated June 4, 2019.) (Source: Navy email to CRS dated June 4, 2019.)
23 See, for example, David B. Larter, “US Navy Looks to Ease into Using Unmanned Robot Ships with a Manned 23 See, for example, David B. Larter, “US Navy Looks to Ease into Using Unmanned Robot Ships with a Manned
Crew,” Crew,” Defense News, January 29, 2019. , January 29, 2019.
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LUSVs are to feature both built-in capabilities and an ability to accept modular payloads, and are to use existing Navy sensors and weapon launchers. Figure 6. Prototype and Notional LUSVs and MUSVs

Source: Detail from Navy briefing slide entitled Unmanned Maritime Systems, slide 5 in a Navy briefing entitled Detail from Navy briefing slide entitled Unmanned Maritime Systems, slide 5 in a Navy briefing entitled
“Designing & Building the Surface Fleet: Unmanned and Small Combatants,” by Rear Admiral Casey Moton at a “Designing & Building the Surface Fleet: Unmanned and Small Combatants,” by Rear Admiral Casey Moton at a
June 20, 2019, conference of the American Society of Naval Engineers (ASNE). June 20, 2019, conference of the American Society of Naval Engineers (ASNE).
FY2020 Legislative Activity In marking up the Navy’s proposed FY2020 budget, some of the congressional defense In marking up the Navy’s proposed FY2020 budget, some of the congressional defense
committees expressed concerns over whether the Navy’s accelerated acquisition strategies committees expressed concerns over whether the Navy’s accelerated acquisition strategies
provided enough time to adequately develop concepts of operations and key technologies for provided enough time to adequately develop concepts of operations and key technologies for
large UVs, particularly the LUSV. In its report (S.Rept. 116-48 of June 11, 2019) on the FY2020 large UVs, particularly the LUSV. In its report (S.Rept. 116-48 of June 11, 2019) on the FY2020
National Defense Authorization Act (S. 1790), the Senate Armed Services Committee statedNational Defense Authorization Act (S. 1790), the Senate Armed Services Committee stated:
The committee is concerned that the budget request’s concurrent approach to LUSV The committee is concerned that the budget request’s concurrent approach to LUSV
design, technology development, and integration as well as a limited understanding of the design, technology development, and integration as well as a limited understanding of the
LUSV concept of employment, requirements, and reliability for envisioned missions pose LUSV concept of employment, requirements, and reliability for envisioned missions pose
excessive acquisition risk for additional LUSV procurement in fiscal year 2020. The excessive acquisition risk for additional LUSV procurement in fiscal year 2020. The
committee is also concerned by the unclear policy implications of LUSVs, including ill-committee is also concerned by the unclear policy implications of LUSVs, including ill-
defined international unmanned surface vessel standards and the legal status of armed or defined international unmanned surface vessel standards and the legal status of armed or
potentially armed LUSVs. potentially armed LUSVs.
Additionally, the committee notes that the Navy’s “Report to Congress on the Annual Additionally, the committee notes that the Navy’s “Report to Congress on the Annual
Long-Range Plan for Construction of Naval Vessels for Fiscal Year 2020” acknowledges Long-Range Plan for Construction of Naval Vessels for Fiscal Year 2020” acknowledges
similar issues: “Unmanned and optionally-manned systems are not accounted for in the similar issues: “Unmanned and optionally-manned systems are not accounted for in the
Congressional Research Service 10 Navy Large Unmanned Surface and Undersea Vehicles overall battle force[.] ... The physical challenges of extended operations at sea across the overall battle force[.] ... The physical challenges of extended operations at sea across the
spectrum of competition and conflict, the concepts of operations for these platforms, and spectrum of competition and conflict, the concepts of operations for these platforms, and
the policy challenges associated with employing deadly force from autonomous vehicles the policy challenges associated with employing deadly force from autonomous vehicles
must be well understood prior to replacing accountable battle force ships.” must be well understood prior to replacing accountable battle force ships.”
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The committee believes that further procurement of LUSVs should occur only after the The committee believes that further procurement of LUSVs should occur only after the
lessons learned from the current SCO initiative have been incorporated into the next lessons learned from the current SCO initiative have been incorporated into the next
solicitation to enable incremental risk reduction. solicitation to enable incremental risk reduction.
In addition, the committee believes that the LUSV program, which appears likely to exceed In addition, the committee believes that the LUSV program, which appears likely to exceed
the Major Defense Acquisition Program cost threshold, would benefit from a more rigorous the Major Defense Acquisition Program cost threshold, would benefit from a more rigorous
requirements definition process, analysis of alternatives, and deliberate acquisition requirements definition process, analysis of alternatives, and deliberate acquisition
strategy.24 strategy.24
Figure 7. LUSV Prototype Source: Cropped version of photograph accompanying Mallory Shelbourne, “6 Companies Awarded Contracts to Start Work on Large Unmanned Surface Vehicle,” USNI News, September 4, 2020. The caption to the photograph states in part: “A Ghost Fleet Overlord test vessel takes part in a capstone demonstration during the conclusion of Phase I of the program in September.” The photo is credited to the U.S. Navy. S.Rept. 116-48 also stated~~S.Rept. 116-48 also stated:~~
While recognizing the need for prototypes to reduce acquisition risk, the committee is While recognizing the need for prototypes to reduce acquisition risk, the committee is
concerned that the acquisition strategies for the Large USV, Medium USV, Orca UUV, concerned that the acquisition strategies for the Large USV, Medium USV, Orca UUV,
and Snakehead UUV could lead to procurement of an excessive number of systems before and Snakehead UUV could lead to procurement of an excessive number of systems before
the Navy is able to determine if the USVs and UUVs meet operational needs. the Navy is able to determine if the USVs and UUVs meet operational needs.
Therefore, the committee directs the Secretary of the Navy to submit a report to the Therefore, the committee directs the Secretary of the Navy to submit a report to the
congressional defense committees, not later than November 1, 2019, that provides congressional defense committees, not later than November 1, 2019, that provides
acquisition roadmaps for the Large USV, Medium USV, Orca UUV, and Snakehead acquisition roadmaps for the Large USV, Medium USV, Orca UUV, and Snakehead
UUV.25 UUV.25
24 S.Rept. 116-48, p. 80. 25 S.Rept. 116-48, p. 106. The report stated further on pages 106-107 that Each roadmap shall: (1) Identify the applicable requirements document (e.g., Top Level Requirements); (2) Describe the threshold and objective values for each characteristic, key performance parameter (KPP), or other measure in the applicable requirements document; (3) Identify increments of vessels in each program; (4) For each such increment, identify specific entrance and exit criteria that build toward the specified requirements (e.g., characteristic, KPP, or other measure), including demonstrated hardware and software functionality; (5) Identify the quantity of vessels needed in each increment to perform the required testing or meet operational Congressional Research Service 11 Navy Large Unmanned Surface and Undersea Vehicles Figure 8. LUSV prototype Source: Cropped version of photograph accompanying Mallory Shelbourne, “6 Companies Awarded Contracts to Start Work on Large Unmanned Surface Vehicle,” USNI News, September 4, 2020. The caption to the photograph states in part: “A Ghost Fleet Overlord test vessel takes part in a capstone demonstration during the conclusion of Phase I of the program in September.” The photo is credited to the U.S. Navy. In its report (S.Rept. 116-103 of September 12, 2019) on the FY2020 Department of Defense (DOD) ~~In its report (S.Rept. 116-103 of September 12, 2019) on the FY2020 DOD~~ Appropriations Act Appropriations Act
(S. 2474), the Senate Appropriations Committee stated that (S. 2474), the Senate Appropriations Committee stated that
the Committee is concerned that for several unmanned programs the Navy is pursuing the Committee is concerned that for several unmanned programs the Navy is pursuing
acquisition strategies that would limit future competitive opportunities by awarding acquisition strategies that would limit future competitive opportunities by awarding
system-level prototypes early in the acquisition process and failing to articulate capability, system-level prototypes early in the acquisition process and failing to articulate capability,
requirements or technology roadmaps to encourage industrial innovation. The Assistant requirements or technology roadmaps to encourage industrial innovation. The Assistant
Secretary of the Navy (Research, Development and Acquisition) is directed to submit to Secretary of the Navy (Research, Development and Acquisition) is directed to submit to
the congressional defense committees with the fiscal year 2021 President’s budget request the congressional defense committees with the fiscal year 2021 President’s budget request
such acquisition roadmaps for each unmanned acquisition program that include no less such acquisition roadmaps for each unmanned acquisition program that include no less
than mission requirements, program requirements for each increment, key technologies, than mission requirements, program requirements for each increment, key technologies,
acquisition strategies, test strategies, sub-system and system-level prototyping plans, and acquisition strategies, test strategies, sub-system and system-level prototyping plans, and
cost estimates.26 cost estimates.26
S.Rept. 116-103 also stated S.Rept. 116-103 also stated
The Committee fully supports additional investments in unmanned and autonomous The Committee fully supports additional investments in unmanned and autonomous
technologies, systems and sub-systems, including surface and sub-surface vessels. technologies, systems and sub-systems, including surface and sub-surface vessels.

~~24 S.Rept. 116-48, p. 80.~~
~~25 S.Rept. 116-48, p. 106. The report stated further on pages 106-107 that~~
~~Each roadmap shall: (1) Identify the applicable requirements document (e.g., Top Level~~
~~Requirements); (2) Describe the threshold and objective values for each characteristic, key~~
~~performance parameter (KPP), or other measure in the applicable requirements document; (3)~~
~~Identify increments of vessels in each program; (4) For each such increment, identify specific~~
~~entrance and exit criteria that build toward the specified requirements (e.g., characteristic, KPP, or~~
~~other measure), including demonstrated hardware and software functionality; (5) Identify the~~
~~quantity of vessels needed in each increment to perform the required testing or meet operational~~
However, the Committee is concerned with the proposed acquisition and funding strategies for the MUSV and LUSV in this budget request, to include the Future Years Defense Program. Therefore, the Committee recommends several adjustments, as detailed elsewhere in this report, and directs the Assistant Secretary of the Navy (Research, Development and Acquisition) to review the acquisition strategies for these programs to needs; (6) Describe the concept of operations for each increment; (7) Identify the key pieces of needs; (6) Describe the concept of operations for each increment; (7) Identify the key pieces of
hardware and software needed for each increment, including communications security material, hardware and software needed for each increment, including communications security material,
off-board line-of-sight and satellite communications, and military datalinks; (8) Describe the extent off-board line-of-sight and satellite communications, and military datalinks; (8) Describe the extent
to which each increment of vessels will be equipped with weapons, enumerate such weapons, and to which each increment of vessels will be equipped with weapons, enumerate such weapons, and
describe the associated target detect-to-engage sequence of events for each such weapon; (9) describe the associated target detect-to-engage sequence of events for each such weapon; (9)
Provide the subsystem-level prototyping plan for each increment, including for each such effort the Provide the subsystem-level prototyping plan for each increment, including for each such effort the
planned cost, schedule, and performance; and (10) Provide the acquisition plan for each increment, planned cost, schedule, and performance; and (10) Provide the acquisition plan for each increment,
including the planned cost, schedule, and performance. including the planned cost, schedule, and performance.
26 S.Rept. 116-103, p. 191. 26 S.Rept. 116-103, p. 191.
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~~However, the Committee is concerned with the proposed acquisition and funding strategies~~
~~for the MUSV and LUSV in this budget request, to include the Future Years Defense~~
~~Program. Therefore, the Committee recommends several adjustments, as detailed~~
~~elsewhere in this report, and directs the Assistant Secretary of the Navy (Research,~~
~~Development and Acquisition) to review the acquisition strategies for these programs to~~
address congressional concerns, as appropriately balanced with warfighter needs. (Page address congressional concerns, as appropriately balanced with warfighter needs. (Page
194)27 194)27
The explanatory statement for the final version of the FY2020 DOD Appropriations Act (Division The explanatory statement for the final version of the FY2020 DOD Appropriations Act (Division
A of H.R. 1158/P.L. 116-93 of December 20, 2020) statedA of H.R. 1158/P.L. 116-93 of December 20, 2020) stated:
The Secretary of the Navy is directed to comply with the full funding policy for LUSVs in The Secretary of the Navy is directed to comply with the full funding policy for LUSVs in
future budget submissions. Further, the agreement recommends $50,000,000 for the design future budget submissions. Further, the agreement recommends $50,000,000 for the design
of future LUSVs without a vertical launch system [VLS] capability in fiscal year 2020. of future LUSVs without a vertical launch system [VLS] capability in fiscal year 2020.
Incremental upgrade capability for a vertical launch system may be addressed in future Incremental upgrade capability for a vertical launch system may be addressed in future
fiscal years. It is directed that no funds may be awarded for the conceptual design of future fiscal years. It is directed that no funds may be awarded for the conceptual design of future
LUSVs until the Assistant Secretary of the Navy (Research, Development and Acquisition) LUSVs until the Assistant Secretary of the Navy (Research, Development and Acquisition)
briefs the congressional defense committees on the updated acquisition strategy for briefs the congressional defense committees on the updated acquisition strategy for
unmanned surface vessels.28 unmanned surface vessels.28
FY2021 Budget Submission In response to the markups from the congressional defense committees, the Navy’s FY2021 In response to the markups from the congressional defense committees, the Navy’s FY2021
budget submission proposes to modify the acquisition strategy for the LUSV program so as to budget submission proposes to modify the acquisition strategy for the LUSV program so as to
provide more time for developing operational concepts and key technologies before entering into provide more time for developing operational concepts and key technologies before entering into
serial production of deployable units. Under the Navy’s proposed modified LUSV acquisition serial production of deployable units. Under the Navy’s proposed modified LUSV acquisition
strategy, the Navy is proposing to use research and development funding to acquire two strategy, the Navy is proposing to use research and development funding to acquire two
additional prototypes in FY2021 and one more additional prototype in FY2022 before shifting in additional prototypes in FY2021 and one more additional prototype in FY2022 before shifting in
FY2023 to the use of procurement funding for the procurement of deployable LUSVs at annual FY2023 to the use of procurement funding for the procurement of deployable LUSVs at annual
procurement rates in FY2023-FY2025 of 2-2-3. The Navy’s FY2021 budget submission statesprocurement rates in FY2023-FY2025 of 2-2-3. The Navy’s FY2021 budget submission states:
Major changes [in the LUSV program] from [the] FY 2020 President Major changes [in the LUSV program] from [the] FY 2020 President'’s Budget request to s Budget request to
[the] FY 2021 President[the] FY 2021 President'’s Budget request [include the following]: s Budget request [include the following]:
(1) The program will award Conceptual Design (CD) contracts to multiple vendors in (1) The program will award Conceptual Design (CD) contracts to multiple vendors in
FY20. The CD effort will support refinement of a LUSV Performance Specification that FY20. The CD effort will support refinement of a LUSV Performance Specification that
does not include the Vertical Launch System (VLS). The final Performance Specification does not include the Vertical Launch System (VLS). The final Performance Specification
will define a LUSV with reservations in the design to support integration of a variety of will define a LUSV with reservations in the design to support integration of a variety of
capabilities and payloads. This effort, which was originally planned to award in Q2 [the capabilities and payloads. This effort, which was originally planned to award in Q2 [the
second quarter of] FY 2020 will be delayed until early Q4 [the fourth quarter of] FY 2020 second quarter of] FY 2020 will be delayed until early Q4 [the fourth quarter of] FY 2020
in order to support amendment of the CD Request for Proposals (RFP), Performance in order to support amendment of the CD Request for Proposals (RFP), Performance
Specification, and associated artifacts. Specification, and associated artifacts.
(2) The delay in award of the LUSV CD effort will delay follow-on activities (RFP (2) The delay in award of the LUSV CD effort will delay follow-on activities (RFP
[Request for Proposals], [and] source selection) leading up to the award of the LUSV Detail [Request for Proposals], [and] source selection) leading up to the award of the LUSV Detail
Design and Construction (DD&C) contract. DD&C award will be delayed one year, from Design and Construction (DD&C) contract. DD&C award will be delayed one year, from
FY 2021 to FY 2022. The DD&C award will deliver a non-VLS LUSV prototype based FY 2021 to FY 2022. The DD&C award will deliver a non-VLS LUSV prototype based
on the Performance Specification developed during the CD effort. on the Performance Specification developed during the CD effort.
(3) In lieu of the FY 2020 President (3) In lieu of the FY 2020 President'’s Budget request plan of awarding the LUSV DD&C s Budget request plan of awarding the LUSV DD&C
contract in FY21, the Navy is planning to procure up to two additional Overlord prototypes, contract in FY21, the Navy is planning to procure up to two additional Overlord prototypes,
building on the lessons learned through the Ghost Fleet program and advances in C4I and building on the lessons learned through the Ghost Fleet program and advances in C4I and
combat system prototyping efforts. combat system prototyping efforts.

27 S.Rept. 116-103, p. 194. 27 S.Rept. 116-103, p. 194.
28 Explanatory statement for Division A of H.R. 1158, PDF page 274 of 414. 28 Explanatory statement for Division A of H.R. 1158, PDF page 274 of 414.
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(4) The Navy plans to transition LUSV to a program of record in FY 2023 and align [the (4) The Navy plans to transition LUSV to a program of record in FY 2023 and align [the
program’s] procurement funding to the Shipbuilding and Conversion, Navy (SCN) program’s] procurement funding to the Shipbuilding and Conversion, Navy (SCN)
account.29 account.29
A January 13, 2020, press report stated that the Navy A January 13, 2020, press report stated that the Navy ~~plans~~planned to submit a report on the Navy’s concepts of operations for LUSVs and MUSVs in April 2020.30 September 4, 2020 Contract Award On September 4, 2020, DOD announced the following six contract awards for industry studies on the LUSV: Huntington Ingalls Inc., Pascagoula, Mississippi (N00024-20-C-6319); Lockheed Martin Corp., Baltimore, Maryland (N00024-20-C-6320); Bollinger Shipyards Lockport LLC, Lockport, Louisiana (N00024-20-C-6316); Marinette Marine Corp., Marinette, Wisconsin (N00024-20-C-6317); Gibbs & Cox Inc., Arlington, Virginia (N0002420C6318); and Austal USA LLC, Mobile, Alabama (N00024-20-C-6315), are each being awarded a firm-fixed price contract for studies of a Large Unmanned Surface Vessel with a combined value across all awards of $41,985,112. Each contract includes an option for engineering support, that if exercised, would bring the cumulative value for all awards to $59,476,146.  The contract awarded to Huntington Ingalls Inc. is $7,000,000;  the contract awarded to Lockheed Martin Corp. is $6,999,978;  the contract awarded to Bollinger Shipyards Lockport LLC, is $6,996,832;  the contract awarded to Marinette Marine Corp. is $6,999,783;  the contract awarded to Gibbs & Cox Inc. is $6,989,499; and  the contract awarded to Austal USA LLC is $6,999,020. Work will be performed in various locations in the contiguous U.S. in accordance with each contract and is expected to be complete by August 2021, and if option(s) are exercised, work is expected to be complete by May 2022. Fiscal 2020 research, development, test and evaluation (Navy) funds in the amount $41,985,112 will be obligated at time of award and will not expire at the end of the current fiscal year. These contracts were competitively procured via Federal Business Opportunities (now beta.SAM.gov) with eight offers received. The Naval Sea Systems Command, Washington, D.C., is the contracting activity.31 A September 4, 2020, press report about the contract awards stated: “These contracts were established in order to refine specifications and requirements for a Large Unmanned Surface Vessel and conduct reliability studies informed by industry 29 See also Justin Katz, “Navy Says It Will Adjust to LUSV Restrictions; New Plan Will Be Part of Next Budget,” Inside Defense, January 16, 2020; Vivienne Machi, “FY ’21 Budget Request to Include ‘Adjustment’ to LUSV Procurement Schedule, PEO Says,” Defense Daily, January 16, 2020. See also 30 Mallory Shelbourne, “Navy to Submit Report in April on Unmanned CONOPS Development,” Inside Defense, January 13, 2020. See also David B. Larter, “Fleet Commander Directs US Navy’s Surface Force to Develop Concepts for Unmanned Ships,” Defense News, January 2, 2019. 31 Department of Defense, “Contracts For Sept. 4, 2020,” accessed September 8, 2020. The announcement is posted as a single, unbroken paragraph. In reprinting the text of the announcement, CRS broke the announcement into the smaller paragraphs shown here to make the announcement easier to read. Congressional Research Service 14 link to page 7 Navy Large Unmanned Surface and Undersea Vehicles partners with potential solutions prior to release of a Detail Design and Construction contract,” Navy spokesman Capt. Danny Hernandez told USNI News in a statement. “The studies effort is designed to provide robust collaboration with government and industry to assist in maturation of platform specifications, and ensure achievable technical requirements are in place for a separate LUSV DD&C competition.”… “The LUSV studies will support efforts that facilitate requirements refinement, development of an affordable and effective platform; provide opportunities to continue maturing the performance specifications and conduct analysis of alternative design approaches; facilitate reliability improvements and plans for government-furnished equipment and mechanical and electrical systems; and support development of cost reduction and other affordability initiatives,” Hernandez said.32 ~~to submit a report on the Navy’s~~
~~concepts of operations for LUSVs and MUSVs in April 2020.30~~
MUSV Program
The Navy defines MUSVs as being 45 feet to 190 feet long, with displacements of roughly 500 The Navy defines MUSVs as being 45 feet to 190 feet long, with displacements of roughly 500
tons. The Navy wants MUSVs, like LUSVs, to be low-cost, high-endurance, reconfigurable ships tons. The Navy wants MUSVs, like LUSVs, to be low-cost, high-endurance, reconfigurable ships
that can accommodate various payloads. Initial payloads for MUSVs are to be intelligence, that can accommodate various payloads. Initial payloads for MUSVs are to be intelligence,
surveillance and reconnaissance (ISR) payloads and electronic warfare (EW) systems. The Navy surveillance and reconnaissance (ISR) payloads and electronic warfare (EW) systems. The Navy
is pursuing the MUSV program as a rapid prototyping effort under what is known as Section 804 is pursuing the MUSV program as a rapid prototyping effort under what is known as Section 804
middle tier acquisition authority.middle tier acquisition authority.3133 The first MUSV prototype was funded in FY2019 and the The first MUSV prototype was funded in FY2019 and the
Navy wants fund the second prototype in FY2023. Navy wants fund the second prototype in FY2023.
The MUSV program is building on development work by the Defense Advanced Research The MUSV program is building on development work by the Defense Advanced Research
Projects Agency (DARPA) under its Anti-Submarine Warfare Continuous Trail Unmanned Vessel Projects Agency (DARPA) under its Anti-Submarine Warfare Continuous Trail Unmanned Vessel
(ACTUV) effort and the Office of Naval Research (ONR) under its Medium Displacement USV (ACTUV) effort and the Office of Naval Research (ONR) under its Medium Displacement USV
effort. As shown ineffort. As shown in Figure 1, this work led to the design, construction, and testing of the this work led to the design, construction, and testing of the
prototype Sea Hunter medium displacement USV, which has a reported length of 132 feet (about prototype Sea Hunter medium displacement USV, which has a reported length of 132 feet (about
40.2 meters) and a displacement of about 140 tons.40.2 meters) and a displacement of about 140 tons.3234 The Navy’s MUSV program is also to The Navy’s MUSV program is also to
employ a fleet-ready command and control (C2) solution for USVs that was developed by the employ a fleet-ready command and control (C2) solution for USVs that was developed by the
Strategic Capabilities Office for the LUSV program. Strategic Capabilities Office for the LUSV program.
On July 13, 2020, the Navy announced that it had awarded “a $34,999,948 contract to L3 On July 13, 2020, the Navy announced that it had awarded “a $34,999,948 contract to L3[Harris]
Technologies, Inc. for the development of a single Medium Unmanned Surface Vehicle (MUSV) Technologies, Inc. for the development of a single Medium Unmanned Surface Vehicle (MUSV)
prototype, with options to procure up to eight additional MUSVs. The award follows a full and prototype, with options to procure up to eight additional MUSVs. The award follows a full and
open competitive procurement process. Funding is in place on this contract for the initial open competitive procurement process. Funding is in place on this contract for the initial
prototype. With all options exercised, the contract is valued at $281,435,446 if additional funding prototype. With all options exercised, the contract is valued at $281,435,446 if additional funding
is provided in future budget years.”is provided in future budget years.”3335 The Navy reportedly stated that there were five competitors 32 Mallory Shelbourne, “6 Companies Awarded Contracts to Start Work on Large Unmanned Surface Vehicle,” USNI News, September 4, 2020. See also Paul McLeary, “Navy Awards Study Contracts On Large Unmanned Ship—As Congress Watches Closely,” Breaking Defense, September 4, 2020. 33 ~~The Navy reportedly stated that there were five competitors~~
~~for the contract, but did not identify the other four.34~~

~~29 See also Justin Katz, “Navy Says It Will Adjust to LUSV Restrictions; New Plan Will Be Part of Next Budget,”~~
Inside Defense, January 16, 2020; Vivienne Machi, “FY ’21 Budget Request to Onclude ‘Adjustment’ to LUSV
~~Procurement Schedule, PEO Says,” Defense Daily, January 16, 2020.~~
~~30 Mallory Shelbourne, “Navy to Submit Report in April on Unmanned CONOPS Development,” Inside Defense,~~
~~January 13, 2020. See also David B. Larter, “Fleet Commander Directs US Navy’s Surface Force to Develop Concepts~~
~~for Unmanned Ships,” Defense News, January 2, 2019.~~
31 This is a reference to Section 804 of the FY2016 National Defense Authorization Act (S. 1356/P.L. 114-92 of This is a reference to Section 804 of the FY2016 National Defense Authorization Act (S. 1356/P.L. 114-92 of
November 25, 2015). The rapid prototyping authority provided by that section is now codified at 10 U.S.C. 2302 note. November 25, 2015). The rapid prototyping authority provided by that section is now codified at 10 U.S.C. 2302 note.
For more on this authority, see “Middle Tier Acquisition (Section 804),” MITRE, undated, accessed May 24, 2019, at For more on this authority, see “Middle Tier Acquisition (Section 804),” MITRE, undated, accessed May 24, 2019, at
https://aida.mitre.org/middle-tier/; and “Acquisition Process, Middle Tier Acquisition (Section 804),” AcqNotes, https://aida.mitre.org/middle-tier/; and “Acquisition Process, Middle Tier Acquisition (Section 804),” AcqNotes,
updated March 26, 2019, accessed May 24, 2019, at http://acqnotes.com/acqnote/acquisitions/middle-tier-acquisitions. updated March 26, 2019, accessed May 24, 2019, at http://acqnotes.com/acqnote/acquisitions/middle-tier-acquisitions.
3234 See, for example, Megan Eckstein, “Sea Hunter Unmanned Ship Continues Autonomy Testing as NAVSEA Moves See, for example, Megan Eckstein, “Sea Hunter Unmanned Ship Continues Autonomy Testing as NAVSEA Moves
Forward with Draft RFP,” Forward with Draft RFP,” USNI News, April 29, 2019; Evan Milberg, “DARPA “Sea Hunter,” World’s Largest , April 29, 2019; Evan Milberg, “DARPA “Sea Hunter,” World’s Largest
Autonomous Ship, Transferred to U.S. Navy,” Autonomous Ship, Transferred to U.S. Navy,” Composites Manufacturing Magazine, February 12, 2018; Sydney J. , February 12, 2018; Sydney J.
Freedberg Jr., “DSD [Deputy Secretary of Defense] Work Embraces DARPA’s Robot Boat, Sea Hunter,” Freedberg Jr., “DSD [Deputy Secretary of Defense] Work Embraces DARPA’s Robot Boat, Sea Hunter,” Breaking
Defense, April 7, 2016. , April 7, 2016.
3335 PEO Unmanned and Small Combatants Public Affairs, “Navy Awards Contract for Medium Unmanned Surface PEO Unmanned and Small Combatants Public Affairs, “Navy Awards Contract for Medium Unmanned Surface
~~Vehicle Prototype,” Naval Sea Systems Command, July 13, 2020.~~
~~34 Rich Abott, “L3Harris Wins $35 Million MUSV Prototype Contract,” Defense Daily, July 13, 2020. See also Sam~~
~~Congressional Research Service~~
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Congressional Research Service 15 link to page 20 link to page 7 Navy Large Unmanned Surface and Undersea Vehicles for the contract, but did not identify the other four.36 Figure 9 shows a rendering of L3Harris’s design concept. L3Harris states that will integrate the company’s ASView™ autonomy technology into a purpose-built 195-foot commercially derived vehicle from a facility along the Gulf Coast of Louisiana. The MUSV will provide intelligence, surveillance and reconnaissance to the fleet while maneuvering autonomously and complying with international Collision Regulations, even in operational environments.… L3Harris will be the systems integrator and provide the mission autonomy and perception technology as the prime contractor on the program. The program team includes Gibbs & Cox and Incat Crowther who will provide the ship design and Swiftships will complete the construction of the vehicle. L3Harris is a world leader in actively powered Unmanned Surface Vehicle (USV) systems, with over 115 USVs delivered worldwide. L3Harris’ USVs are actively serving the Navy, universities, research institutions and commercial businesses.37 Figure 9. Rendering of L3Harris Design Concept for MUSV Source: L3Harris Technologies, “L3Harris Technologies Awarded Medium Unmanned Surface Vehicle Program from US Navy,” August 18, 2020. See also Richard R. Burgess, “Navy’s Medium USV to Be Based on Commercial Vehicle,” Seapower, August 19, 2020.
XLUUV Program
The XLUUV program, also known as the Orca program, was established to address a Joint The XLUUV program, also known as the Orca program, was established to address a Joint
Emergent Operational Need (JEON). As shown iEmergent Operational Need (JEON). As shown in Figure 2, the Navy defines XLUUVs as UUVs he Navy defines XLUUVs as UUVs
with a diameter of more than 84 inches, meaning that XLUUVs are to be too large to be launched with a diameter of more than 84 inches, meaning that XLUUVs are to be too large to be launched
from a manned Navy submarine.from a manned Navy submarine.3538 Consequently, XLUUVs instead will transported to a forward Consequently, XLUUVs instead will transported to a forward
operating port and then launched from pier. The Navy wants XLUUVs to be equipped with a operating port and then launched from pier. The Navy wants XLUUVs to be equipped with a
modular payload bay for carrying mines and other payloads. modular payload bay for carrying mines and other payloads.
Vehicle Prototype,” Naval Sea Systems Command, July 13, 2020. 36 Rich Abott, “L3Harris Wins $35 Million MUSV Prototype Contract,” Defense Daily, July 13, 2020. See also Sam LaGrone, “Navy Awards Contract for First Vessel In Its Family of Unmanned Surface Vehicles,” USNI News, July 14 (updated July 15), 2020; Paul McLeary, “Navy Inks Deal For New Unmanned Fleet,” Breaking Defense, July 13, 2020. 37 L3Harris Technologies, “L3Harris Technologies Awarded Medium Unmanned Surface Vehicle Program from US Navy,” August 18, 2020. 38 Navy submarines equipped with large-diameter vertical launch tubes can launch missiles or other payloads with diameters of up to about 83 inches. Congressional Research Service 16 link to page 22 link to page 22 link to page 23 Navy Large Unmanned Surface and Undersea Vehicles The first five XLUUVs were funded in FY2019 through the Navy’s research and development The first five XLUUVs were funded in FY2019 through the Navy’s research and development
appropriation account. The Navy conducted a competition for the design of the XLUUV, and appropriation account. The Navy conducted a competition for the design of the XLUUV, and
announced on February 13, 2019, that it had selected Boeing to fabricate, test, and deliver the first announced on February 13, 2019, that it had selected Boeing to fabricate, test, and deliver the first
four Orca XLUUVs and associated support elements.four Orca XLUUVs and associated support elements.3639 (The other bidder was a team led by (The other bidder was a team led by
Lockheed Martin.) On March 27, 2019, the Navy announced that the award to Boeing had been Lockheed Martin.) On March 27, 2019, the Navy announced that the award to Boeing had been
expanded to include the fifth Orca.expanded to include the fifth Orca.3740 Boeing has partnered with the Technical Solutions division Boeing has partnered with the Technical Solutions division
of Huntington Ingalls Industries (HII) to build Orca XLUUVs.of Huntington Ingalls Industries (HII) to build Orca XLUUVs.3841 (A separate division of HII— (A separate division of HII—
Newport News Shipbuilding (NNS) of Newport News, VA—is one of the Navy’s two submarine Newport News Shipbuilding (NNS) of Newport News, VA—is one of the Navy’s two submarine
builders.) builders.)
The Navy wants procure additional XLUUVs at a rate of two per year starting in FY2023. The The Navy wants procure additional XLUUVs at a rate of two per year starting in FY2023. The
Navy’s FY2021 budget submission does not include funding for the procurement of additional Navy’s FY2021 budget submission does not include funding for the procurement of additional
XLUUVs in FY2021 or FY2022. The Navy is proposing to fund the procurement of XLUUVs in XLUUVs in FY2021 or FY2022. The Navy is proposing to fund the procurement of XLUUVs in
FY2023 and subsequent years through the Other Procurement, Navy (OPN) appropriation FY2023 and subsequent years through the Other Procurement, Navy (OPN) appropriation
account. account.
In June 2020, it was reported that a study of future Navy force-level requirements led by the Cost In June 2020, it was reported that a study of future Navy force-level requirements led by the Cost
Assessment and Program Evaluation (CAPE) office within the Office of the Secretary of Defense Assessment and Program Evaluation (CAPE) office within the Office of the Secretary of Defense
(OSD) recommended a future Navy with, among other things, up to 50 XLUUVs.(OSD) recommended a future Navy with, among other things, up to 50 XLUUVs.3942
Boeing’s Orca XLUUV design will be informed by (but likely differ in certain respects from) the Boeing’s Orca XLUUV design will be informed by (but likely differ in certain respects from) the
design of Boeing’s Echo Voyager UUV design of Boeing’s Echo Voyager UUV (Figure 710, Figure 8~~, and~~11, and Figure 912)..4043 Echo Voyager is 51 Echo Voyager is 51
feet long and has a rectangular cross section of 8.5 feet by 8.5 feet, a weight in the air of 50 tons, feet long and has a rectangular cross section of 8.5 feet by 8.5 feet, a weight in the air of 50 tons,
and a range of up to 6,500 nautical miles. It can accommodate a modular payload section up to 34 and a range of up to 6,500 nautical miles. It can accommodate a modular payload section up to 34
feet in length, increasing its length to as much as 85 feet. A 34-foot modular payload section feet in length, increasing its length to as much as 85 feet. A 34-foot modular payload section
provides about 2,000 cubic feet of internal payload volume; a shorter (14-foot) section provides provides about 2,000 cubic feet of internal payload volume; a shorter (14-foot) section provides
about 900 cubic feet. Echo Voyager can also accommodate external payloads.about 900 cubic feet. Echo Voyager can also accommodate external payloads.4144 39 Department of Defense, Contracts for Feb. 13, 2019. 40 Department of Defense, Contracts for March 27, 2019. 41

~~LaGrone, “Navy Awards Contract for First Vessel In Its Family of Unmanned Surface Vehicles,” USNI News, July 14~~
~~(updated July 15), 2020; Paul McLeary, “Navy Inks Deal For New Unmanned Fleet,” Breaking Defense, July 13, 2020.~~
~~35 Navy submarines equipped with large-diameter vertical launch tubes can launch missiles or other payloads with~~
~~diameters of up to about 83 inches.~~
~~36 Department of Defense, Contracts for Feb. 13, 2019.~~
~~37 Department of Defense, Contracts for March 27, 2019.~~
38 See, for example, Hugh Lessig, “Shipbuilder Lends a Hand with Rise of Robot Submarines,” See, for example, Hugh Lessig, “Shipbuilder Lends a Hand with Rise of Robot Submarines,” Defense News, May 26, , May 26,
2019. 2019.
3942 David B. Larter, “To Compete with China, An Internal Pentagon Study Looks to Pour Money into Robot David B. Larter, “To Compete with China, An Internal Pentagon Study Looks to Pour Money into Robot
Submarines,” Submarines,” Defense News, June 1, 2020. , June 1, 2020.
4043 See, for example, Hugh Lessig, “Shipbuilder Lends a Hand with Rise of Robot Submarines,” See, for example, Hugh Lessig, “Shipbuilder Lends a Hand with Rise of Robot Submarines,” Defense News, May 26, , May 26,
2019. 2019.
4144 Source: Boeing product sheet on Echo Voyager, accessed May 31, 2019, at https://www.boeing.com/resources/ Source: Boeing product sheet on Echo Voyager, accessed May 31, 2019, at https://www.boeing.com/resources/
boeingdotcom/defense/autonomous-systems/echo-voyager/echo_voyager_product_sheet.pdf. boeingdotcom/defense/autonomous-systems/echo-voyager/echo_voyager_product_sheet.pdf.
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Figure 710. Boeing Echo Voyager UUV

Source: Boeing photograph posted at https://www.boeing.com/defense/autonomous-systems/echo-voyager/Boeing photograph posted at https://www.boeing.com/defense/autonomous-systems/echo-voyager/
index.page#/gallery. index.page#/gallery.
Figure 811. Boeing Echo Voyager UUV

Source: Boeing photograph posted at https://www.boeing.com/defense/autonomous-systems/echo-voyager/Boeing photograph posted at https://www.boeing.com/defense/autonomous-systems/echo-voyager/
index.page#/gallery. index.page#/gallery.
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Figure 912. Boeing Echo Voyager UUV

Source: Navy briefing entitled “Unmanned Maritime Systems,” Howard Berkof, Deputy Program Manager, Navy briefing entitled “Unmanned Maritime Systems,” Howard Berkof, Deputy Program Manager,
Unmanned Maritime Systems, PMS 406, Distribution A: Approved for public release; distribution unlimited, Unmanned Maritime Systems, PMS 406, Distribution A: Approved for public release; distribution unlimited,
October 23, 2019, slide 5. October 23, 2019, slide 5.
FY2021-FY2025 Funding
Table 1 shows FY2021-FY2025 requested and programmed funding for the large UV programs shows FY2021-FY2025 requested and programmed funding for the large UV programs
covered in this report. covered in this report.
Table 1. FY2021-FY2025 Requested and Programmed Funding for Large UVs
Millions of dollars, rounded to nearest tenth Millions of dollars, rounded to nearest tenth
FY21-
FY25
Program
FY21
FY22
FY23
FY24
FY25
total
LUSV research and development funding LUSV research and development funding
238.6 238.6
377.2 377.2
144.5 144.5
198.7 198.7
134.9 134.9
1,093.9 1,093.9
(Quantity—prototype LUSVs)
(2)
(1)
(0)
(0)
(0)
(3)
LUSV (procurement funding LUSV (procurement funding
0 0
0 0
455.0 455.0
373.6 373.6
536.6 536.6
1,365.2 1,365.2
(Quantity—deployable LUSVs)
(0)
(0)
(2)
(2)
(3)
(7)
MUSV research and development funding MUSV research and development funding
26.3 26.3
30.0 30.0
43.0 43.0
43.9 43.9
44.7 44.7
187.9 187.9
(Quantity—prototype MUSVs)
(0)
(0)
(1)
(0)
(0)
(1)
LUSV and MUSV enabling technologies LUSV and MUSV enabling technologies
199.1 199.1
122.8 122.8
192.8 192.8
77.9 77.9
80.9 80.9
673.9 673.9
research and development funding research and development funding
XLUUV research and development funding XLUUV research and development funding
115.9 115.9
43.0 43.0
78.5 78.5
77.0 77.0
7.7 7.7
322.1 322.1
(Quantity)
(0)
(0)
(0)
(0)
(0)
(0)
XLUUV procurement funding XLUUV procurement funding
0 0
0 0
158.5 158.5
162.6 162.6
232.8 232.8
552.9 552.9
(Quantity)
(0)
(0)
(2)
(2)
(2)
(6)
Source: Navy FY2021 budget submission. LUSV is Project 3066 within PE (Program Element) 0603178N (line 27 Navy FY2021 budget submission. LUSV is Project 3066 within PE (Program Element) 0603178N (line 27
in the Navy’s FY2021 research and development account). MUSV is Project 3428 within PE 0603178N (line 27). in the Navy’s FY2021 research and development account). MUSV is Project 3428 within PE 0603178N (line 27).
LUSV and MUSV enabling technologies is Project 3067 within PE 0603178N (line 27). XLUUV is Project 3394 LUSV and MUSV enabling technologies is Project 3067 within PE 0603178N (line 27). XLUUV is Project 3394
within PE 0604536N (line 89). within PE 0604536N (line 89).
Note: Totals may not add due to rounding. Totals may not add due to rounding.
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Issues for Congress
The Navy’s proposals for developing and procuring the large UVs covered in this report pose a The Navy’s proposals for developing and procuring the large UVs covered in this report pose a
number of oversight issues for Congress, including those discussed below. number of oversight issues for Congress, including those discussed below.
Analytical Basis for More Distributed Fleet Architecture
One potential oversight issue for Congress concerns the analytical basis for the Navy’s desire to One potential oversight issue for Congress concerns the analytical basis for the Navy’s desire to
shift to a more distributed fleet architecture featuring a significant contribution from large UVs. shift to a more distributed fleet architecture featuring a significant contribution from large UVs.
Potential oversight questions for Congress include the following: Potential oversight questions for Congress include the following:
 What Navy analyses led to the Navy’s decision to shift toward a more distributed  What Navy analyses led to the Navy’s decision to shift toward a more distributed
architecture? architecture?
 What did these analyses show regarding the relative costs, capabilities, and risks  What did these analyses show regarding the relative costs, capabilities, and risks
of the Navy’s current architecture and the more distributed architecture? of the Navy’s current architecture and the more distributed architecture?
 How well developed, and how well tested, are the operational concepts  How well developed, and how well tested, are the operational concepts
associated with the more distributed architecture? associated with the more distributed architecture?
Accelerated Acquisition Strategies and Funding Method
Another potential oversight issue for Congress concerns the accelerated acquisition strategies that Another potential oversight issue for Congress concerns the accelerated acquisition strategies that
the Navy wants to use for these large UV programs. Potential oversight questions for Congress the Navy wants to use for these large UV programs. Potential oversight questions for Congress
include the following: include the following:
 What are the potential costs, benefits, and risks of pursuing these accelerated  What are the potential costs, benefits, and risks of pursuing these accelerated
strategies rather than a more traditional acquisition approach that would spend strategies rather than a more traditional acquisition approach that would spend
more time developing the technologies and operational concepts for these UVs more time developing the technologies and operational concepts for these UVs
prior to putting them into serial production? How are those considerations prior to putting them into serial production? How are those considerations
affected by the shift in the international security environment from the post-Cold affected by the shift in the international security environment from the post-Cold
War era to the new era of renewed major power competition?War era to the new era of renewed major power competition?4245
 Are the Navy’s proposed changes to the LUSV’s accelerated acquisition strategy  Are the Navy’s proposed changes to the LUSV’s accelerated acquisition strategy
appropriate and sufficient? appropriate and sufficient?
 To what degree, if any, can these large UV programs contribute to new  To what degree, if any, can these large UV programs contribute to new
approaches for defense acquisition that are intended to respond to the new approaches for defense acquisition that are intended to respond to the new
international security environment? international security environment?
Technical, Schedule, and Cost Risk
Another potential oversight issue for Congress concerns the amount of technical, schedule, and Another potential oversight issue for Congress concerns the amount of technical, schedule, and
cost risk in these programs, particularly given that these platforms potentially are to operate at sea cost risk in these programs, particularly given that these platforms potentially are to operate at sea
unmanned and semi-autonomously or autonomously for extended periods of time. Potential unmanned and semi-autonomously or autonomously for extended periods of time. Potential
oversight questions for Congress include the following: oversight questions for Congress include the following:
 How much risk of this kind do these programs pose, particularly given the  How much risk of this kind do these programs pose, particularly given the
enabling technologies that need to be developed for them? enabling technologies that need to be developed for them?
 In addition to the Navy’s proposed changes to the LUSV’s acquisition strategy,  In addition to the Navy’s proposed changes to the LUSV’s acquisition strategy,
what is the Navy doing to mitigate or manage cost, schedule, and technical risks what is the Navy doing to mitigate or manage cost, schedule, and technical risks

4245 For more on this shift, see CRS Report R43838, For more on this shift, see CRS Report R43838, Renewed Great Power Competition: Implications for Defense—
Issues for Congress, by Ronald O'Rourke. , by Ronald O'Rourke.
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while it seeks to deploy these UVs on an accelerated acquisition timeline? Are while it seeks to deploy these UVs on an accelerated acquisition timeline? Are
these risk-mitigation and risk-management efforts appropriate and sufficient? these risk-mitigation and risk-management efforts appropriate and sufficient?
 At what point would technical problems, schedule delays, or cost growth in these  At what point would technical problems, schedule delays, or cost growth in these
programs require a reassessment of the Navy’s plan to shift from the current fleet programs require a reassessment of the Navy’s plan to shift from the current fleet
architecture to a more distributed architecture? architecture to a more distributed architecture?
A June 1, 2020, press report states A June 1, 2020, press report states:
The U.S. military is banking on unmanned surface and subsurface vessels to boost its The U.S. military is banking on unmanned surface and subsurface vessels to boost its
capacity in the face of a tsunami of Chinese naval spending. But before it can field the capacity in the face of a tsunami of Chinese naval spending. But before it can field the
systems, it must answer some basic questions. systems, it must answer some basic questions.
How will these systems deploy? How will they be supported overseas? Who will support How will these systems deploy? How will they be supported overseas? Who will support
them? Can the systems be made sufficiently reliable to operate alone and unafraid on the them? Can the systems be made sufficiently reliable to operate alone and unafraid on the
open ocean for weeks at a time? Will the systems be able to communicate in denied open ocean for weeks at a time? Will the systems be able to communicate in denied
environments? environments?
As the Navy goes all-in on its unmanned future, with billions of dollars of investments As the Navy goes all-in on its unmanned future, with billions of dollars of investments
planed, how the service answers those questions will be crucial to the success or failure of planed, how the service answers those questions will be crucial to the success or failure of
its unmanned pivot.its unmanned pivot.4346
A June 23, 2020, press report states A June 23, 2020, press report states:
The Navy’s transition from prototype to program of record for its portfolio of unmanned The Navy’s transition from prototype to program of record for its portfolio of unmanned
surface and undersea systems is being aided by industry, international partners and surface and undersea systems is being aided by industry, international partners and
developmental squadrons, even as the program office seeks to ease concerns that the developmental squadrons, even as the program office seeks to ease concerns that the
transition is happening too fast, the program executive officer for unmanned and small transition is happening too fast, the program executive officer for unmanned and small
combatants said today. combatants said today.
Rear Adm. Casey Moton said he’s aware of concerns regarding how unmanned systems – Rear Adm. Casey Moton said he’s aware of concerns regarding how unmanned systems –
particularly the Large Unmanned Surface Vessel – will be developed and used by the fleet, particularly the Large Unmanned Surface Vessel – will be developed and used by the fleet,
but he’s confident in his team’s path forward. but he’s confident in his team’s path forward.
“From my standpoint we are making a lot of great progress in working out the technical “From my standpoint we are making a lot of great progress in working out the technical
maturity, answering those kinds of questions (about how to employ and sustain the vessels) maturity, answering those kinds of questions (about how to employ and sustain the vessels)
and getting the requirements right before we move into production,” he said in a virtual and getting the requirements right before we move into production,” he said in a virtual
event today co-hosted by the U.S. Naval Institute and the Center for Strategic and event today co-hosted by the U.S. Naval Institute and the Center for Strategic and
International Studies.International Studies.4447 An August 17, 2020, press report states: As the U.S. Navy pushes forward with developing its large unmanned surface vessel, envisioned as a kind of external missile magazine that will tag along with larger manned surface combatants, a growing consensus is forming that the service needs to get its requirements and systems right before making a big investment.… In an exclusive July 16 interview with Defense News, Chief of Naval Operations Adm. Michael Gilday said that while the [congressional] marks [on the program] were frustrating, he agreed with Congress that requirements must be concrete right up front. “The approach has to be deliberate,” Gilday said. “We have to make sure that the systems that are on those unmanned systems with respect to the [hull, mechanical and electrical 46
~~Annual Procurement Rates~~
~~Another oversight issue for Congress concerns the Navy’s planned annual procurement rates for~~
~~the LUSV and XLUUV programs during the period FY2021-FY2025. Potential oversight~~
~~questions for Congress include, What factors did the Navy consider in arriving at them, and in~~
~~light of these factors, are these rates too high, too low, or about right?~~
~~Industrial Base Implications~~
~~Another oversight issue for Congress concerns the potential industrial base implications of these~~
~~large UV programs as part of a shift to a more distributed fleet architecture, particularly since~~
~~UVs like these can be built and maintained by facilities other than the shipyards that currently~~

43 David B. Larter, “US Navy Embraces Robot Ships, But Some Unresolved Issues Are Holding Them Back,” David B. Larter, “US Navy Embraces Robot Ships, But Some Unresolved Issues Are Holding Them Back,” Defense
News, June 1, 2020. See also Bryan Clark, “Pentagon Needs To Go Faster—And Slower—On Unmanned Systems,” , June 1, 2020. See also Bryan Clark, “Pentagon Needs To Go Faster—And Slower—On Unmanned Systems,”
Forbes, June 11, 2020. , June 11, 2020.
4447 Megan Eckstein, “Program Office Maturing USVs, UUVs With Help From Industry, International Partners,” Megan Eckstein, “Program Office Maturing USVs, UUVs With Help From Industry, International Partners,” USNI
News, June 23, 2020. , June 23, 2020.
Congressional Research Service Congressional Research Service
1821 Navy Large Unmanned Surface and Undersea Vehicles system], that they are designed to requirement, and perform to requirement. And most importantly, are those requirements sound? “I go back to [a question from years ago relating to the development of the Navy’s Littoral Combat Ship (LCS)]: Do I really need a littoral combat ship to go 40 knots? That’s going to drive the entire design of the ship, not just the engineering plant but how it’s built. That becomes a critical factor. If you take your eye off the ball with respect to requirements, you can find yourself drifting. That has to be deliberate.” Gilday has called for the Navy to pursue a comprehensive “Unmanned Campaign Plan” that creates a path forward for developing and fielding unmanned systems in the air, on the sea and under the water. Right now, the effort exists in a number of different programs that may not all be pulling in the same direction, he said. “What I’ve found is that we didn’t necessarily have the rigor that’s required across a number of programs that would bring those together in a way that’s driven toward objectives with milestones,” Gilday told Defense News. “If you took a look at [all the programs], where are there similarities and where are there differences? Where am I making progress in meeting conditions and meeting milestones that we can leverage in other experiments? “At what point do I reach a decision point where I drop a program and double down on a program that I can accelerate?”48 Annual Procurement Rates Another oversight issue for Congress concerns the Navy’s planned annual procurement rates for the LUSV and XLUUV programs during the period FY2021-FY2025. Potential oversight questions for Congress include, What factors did the Navy consider in arriving at them, and in light of these factors, are these rates too high, too low, or about right? Industrial Base Implications Another oversight issue for Congress concerns the potential industrial base implications of these large UV programs as part of a shift to a more distributed fleet architecture, particularly since UVs like these can be built and maintained by facilities other than the shipyards that currently

~~Navy Large Unmanned Surface and Undersea Vehicles~~

build the Navy’s major combatant ships. Potential oversight questions for Congress include the build the Navy’s major combatant ships. Potential oversight questions for Congress include the
following: following:
 What implications would the more distributed architecture have for required  What implications would the more distributed architecture have for required
numbers, annual procurement rates, and maintenance workloads for large surface numbers, annual procurement rates, and maintenance workloads for large surface
combatants (i.e., cruisers and destroyers) and small surface combatants (i.e., combatants (i.e., cruisers and destroyers) and small surface combatants (i.e.,
frigates and Littoral Combat Ships)? frigates and Littoral Combat Ships)?
 What portion of these UVs might be built or maintained by facilities other than  What portion of these UVs might be built or maintained by facilities other than
shipyards that currently build the Navy’s major combatant ships? shipyards that currently build the Navy’s major combatant ships?
 To what degree, if any, might the more distributed architecture and these large  To what degree, if any, might the more distributed architecture and these large
UV programs change the current distribution of Navy shipbuilding and UV programs change the current distribution of Navy shipbuilding and
maintenance work, and what implications might that have for workloads and maintenance work, and what implications might that have for workloads and
employment levels at various production and maintenance facilities? employment levels at various production and maintenance facilities?
48 David B. Larter, “In Developing Robot Warships, US Navy Wants to Avoid Another Littoral Combat Ship,” Defense News, August 17, 2020. See also Loren Thompson, “U.S. Navy Mounts Campaign To Convince Congress That Unmanned Vessels Are Critical To Winning Future Wars,” Forbes, August 17, 2020. Congressional Research Service 22 Navy Large Unmanned Surface and Undersea Vehicles Potential Implications for Miscalculation or Escalation at Sea
Another oversight issue for Congress concerns the potential implications of large UVs, Another oversight issue for Congress concerns the potential implications of large UVs,
particularly large USVs, for the chance of miscalculation or escalation in when U.S. Navy forces particularly large USVs, for the chance of miscalculation or escalation in when U.S. Navy forces
are operating in waters near potential adversaries. Some observers have expressed concern about are operating in waters near potential adversaries. Some observers have expressed concern about
this issue. A June 28, 2019, opinion column, for example, states this issue. A June 28, 2019, opinion column, for example, states
The immediate danger from militarized artificial intelligence isn't hordes of killer robots, The immediate danger from militarized artificial intelligence isn't hordes of killer robots,
nor the exponential pace of a new arms race. nor the exponential pace of a new arms race.
As recent events in the Strait of Hormuz indicate, the bigger risk is the fact that autonomous As recent events in the Strait of Hormuz indicate, the bigger risk is the fact that autonomous
military craft make for temping targets—and increase the potential for miscalculation on military craft make for temping targets—and increase the potential for miscalculation on
and above the high seas. and above the high seas.
While less provocative than planes, vehicles, or ships with human crew or troops aboard, While less provocative than planes, vehicles, or ships with human crew or troops aboard,
unmanned systems are also perceived as relatively expendable. Danger arises when they unmanned systems are also perceived as relatively expendable. Danger arises when they
lower the threshold for military action. lower the threshold for military action.
It is a development with serious implications in volatile regions far beyond the Gulf—not It is a development with serious implications in volatile regions far beyond the Gulf—not
least the South China Sea, where the U.S. has recently confronted both China and Russia…. least the South China Sea, where the U.S. has recently confronted both China and Russia….
As autonomous systems proliferate in the air and on the ocean, [opposing] military As autonomous systems proliferate in the air and on the ocean, [opposing] military
commanders may feel emboldened to strike these platforms, expecting lower repercussions commanders may feel emboldened to strike these platforms, expecting lower repercussions
by avoiding the loss of human life. by avoiding the loss of human life.
Consider when Chinese naval personnel in a small boat seized an unmanned American Consider when Chinese naval personnel in a small boat seized an unmanned American
underwater survey underwater survey ~~glider45~~glider49 in the sea approximately 100 kilometers off the Philippines in in the sea approximately 100 kilometers off the Philippines in
December 2016. The winged, torpedo-shaped unit was within sight of its handlers aboard December 2016. The winged, torpedo-shaped unit was within sight of its handlers aboard
the U.S. Navy oceanographic vessel Bowditch, who gaped in astonishment as it was the U.S. Navy oceanographic vessel Bowditch, who gaped in astonishment as it was
summarily hoisted aboard a Chinese warship less than a kilometer distant. The U.S. summarily hoisted aboard a Chinese warship less than a kilometer distant. The U.S.
responded with a diplomatic demarche and congressional opprobrium, and the glider was responded with a diplomatic demarche and congressional opprobrium, and the glider was
returned within the week…. returned within the week….
In coming years, the Chinese military will find increasingly plentiful opportunities to In coming years, the Chinese military will find increasingly plentiful opportunities to
intercept American autonomous systems. The 40-meter prototype trimaran Sea Hunter, an intercept American autonomous systems. The 40-meter prototype trimaran Sea Hunter, an
experimental submarine-tracking vessel, recently transited between Hawaii and San Diego experimental submarine-tracking vessel, recently transited between Hawaii and San Diego
without human intervention. It has yet to be used operationally, but it is only a matter of without human intervention. It has yet to be used operationally, but it is only a matter of
time before such vessels are deployed…. time before such vessels are deployed….

~~45 A glider is a type of UUV. The glider in question was a few feet in length and resembled a small torpedo with a pair~~
~~of wings. For a press report about the seizure of the glider, see, for example, Sam LaGrone, “Updated: Chinese Seize~~
~~U.S. Navy Unmanned Vehicle,” USNI News, December 16, 2016.~~
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China’s navy may find intercepting such unmanned and unchaperoned surface vessels or China’s navy may find intercepting such unmanned and unchaperoned surface vessels or
mini-submarines too tantalizing to pass up, especially if Washington’s meek retort to the mini-submarines too tantalizing to pass up, especially if Washington’s meek retort to the
2016 glider incident is seen as an indication of American permissiveness or timidity. 2016 glider incident is seen as an indication of American permissiveness or timidity.
With a captive vessel, persevering Chinese technicians could attempt to bypass anti-tamper With a captive vessel, persevering Chinese technicians could attempt to bypass anti-tamper
mechanisms, and if successful, proceed to siphon off communication codes or proprietary mechanisms, and if successful, proceed to siphon off communication codes or proprietary
artificial intelligence software, download navigational data or pre-programmed rules of artificial intelligence software, download navigational data or pre-programmed rules of
engagement, or probe for cyber vulnerabilities that could be exploited against similar engagement, or probe for cyber vulnerabilities that could be exploited against similar
vehicles…. vehicles….
Nearly 100,000 ships transit the strategically vital Singapore Strait annually, where more Nearly 100,000 ships transit the strategically vital Singapore Strait annually, where more
than 75 collisions or groundings occurred last year alone. In such congested international than 75 collisions or groundings occurred last year alone. In such congested international
sea lanes, declaring a foreign navy’s autonomous vessel wayward or unresponsive would sea lanes, declaring a foreign navy’s autonomous vessel wayward or unresponsive would
easily serve as convenient rationale for towing it into territorial waters for impoundment, easily serve as convenient rationale for towing it into territorial waters for impoundment,
or for boarding it straightaway…. or for boarding it straightaway….
49 A glider is a type of UUV. The glider in question was a few feet in length and resembled a small torpedo with a pair of wings. For a press report about the seizure of the glider, see, for example, Sam LaGrone, “Updated: Chinese Seize U.S. Navy Unmanned Vehicle,” USNI News, December 16, 2016. Congressional Research Service 23 link to page 29 Navy Large Unmanned Surface and Undersea Vehicles A memorandum of understanding signed five years ago by the U.S. Department of Defense A memorandum of understanding signed five years ago by the U.S. Department of Defense
and the Chinese defense ministry, as well as the collaborative code of naval conduct created and the Chinese defense ministry, as well as the collaborative code of naval conduct created
at the 2014 Western Pacific Naval Symposium, should be updated with an expanded right-at the 2014 Western Pacific Naval Symposium, should be updated with an expanded right-
of-way hierarchy and non-interference standards to clarify how manned ships and aircraft of-way hierarchy and non-interference standards to clarify how manned ships and aircraft
should interact with their autonomous counterparts. Without such guidance, the risk of should interact with their autonomous counterparts. Without such guidance, the risk of
miscalculation increases. miscalculation increases.
An incident without any immediate human presence or losses could nonetheless trigger An incident without any immediate human presence or losses could nonetheless trigger
unexpected escalation and spark the next conflict.unexpected escalation and spark the next conflict.4650
Personnel Implications
Another oversight issue for Congress concerns the potential personnel implications of Another oversight issue for Congress concerns the potential personnel implications of
incorporating a significant number of large UVs into the Navy’s fleet architecture. Potential incorporating a significant number of large UVs into the Navy’s fleet architecture. Potential
questions for Congress include the following: questions for Congress include the following:
 What implications might these large UVs have for the required skills, training,  What implications might these large UVs have for the required skills, training,
and career paths of Navy personnel? and career paths of Navy personnel?
 Within the Navy, what will be the relationship between personnel who crew  Within the Navy, what will be the relationship between personnel who crew
manned ships and those who operate these large UVs? manned ships and those who operate these large UVs?
FY2021 Funding
Another oversight issue for Congress concerns the funding amounts for these programs that the Another oversight issue for Congress concerns the funding amounts for these programs that the
Navy has requested for these programs for FY2021. Potential oversight questions for Congress Navy has requested for these programs for FY2021. Potential oversight questions for Congress
include the following: include the following:
 Has the Navy accurately priced the work on these programs that it is proposing to  Has the Navy accurately priced the work on these programs that it is proposing to
do in FY2021? do in FY2021?
 To what degree, if any, has funding been requested ahead of need? To what  To what degree, if any, has funding been requested ahead of need? To what
degree, if any, is the Navy insufficiently funding elements of the work to be done degree, if any, is the Navy insufficiently funding elements of the work to be done
in FY2021? in FY2021?
 How might the timelines for these programs be affected by a decision to reduce  How might the timelines for these programs be affected by a decision to reduce
(or add to) the Navy’s requested amounts for these programs? (or add to) the Navy’s requested amounts for these programs?
Legislative Activity for FY2021 Summary of Congressional Action on FY2021 Funding Request Table 2 summarizes congressional action on the Navy’s FY2021 funding request for the LUSV, MUSV, and XLUUV programs and their enabling technologies.
4650 Evan Karlik, “US-China Tensions—Unmanned Military Craft Raise Risk of War,” Evan Karlik, “US-China Tensions—Unmanned Military Craft Raise Risk of War,” Nikkei Asian Review, June 28, , June 28,
2019. See also David B. Larter, “The US Navy Says It’s Doing Its Best to Avoid a ‘Terminator’ Scenario in Quest for 2019. See also David B. Larter, “The US Navy Says It’s Doing Its Best to Avoid a ‘Terminator’ Scenario in Quest for
Autonomous Weapons,” Autonomous Weapons,” Defense News, September 12, 2019, September 12, 2019; David Axe, “Autonomous Navies Could Make War More Likely,” National Interest, August 17, 2020. .
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link to page link to page ~~25 link to page 25~~29 Navy Large Unmanned Surface and Undersea Vehicles

~~Legislative Activity for FY2021~~
~~Summary of Congressional Action on FY2021 Funding Request~~
~~Table 2~~ ~~summarizes congressional action on the Navy’s FY2021 funding request for the LUSV,~~
~~MUSV, and XLUUV programs and their enabling technologies.~~
Table 2. Congressional Action on FY2021 Large UV Funding Request
Millions of dollars, rounded to the nearest tenth Millions of dollars, rounded to the nearest tenth

Authorization
Appropriation

Request HASC
SASC Conf.
HAC
SAC
Conf.
Navy research and development account
LUSV LUSV
238.6 238.6
0 0
0 0

79.3 79.3

Conversion of EPFs to LUSV prototypes Conversion of EPFs to LUSV prototypes
0 0
45.0 45.0
0 0

0 0

MUSV MUSV
26.3 26.3
26.3 26.3
0 0

26.3 26.3

LUSV and LUSV enabling technologies LUSV and LUSV enabling technologies
199.1 199.1
199.1 199.1
0 0

153.6 153.6

XLUUV XLUUV
115.9 115.9
105.9 105.9
95.9 95.9

80.2 80.2

Sources: Table prepared by CRS based on FY2021 Navy budget submission, committee and conference reports, Table prepared by CRS based on FY2021 Navy budget submission, committee and conference reports,
and explanatory statements on the FY2021 National Defense Authorization Act and the FY2021 DOD and explanatory statements on the FY2021 National Defense Authorization Act and the FY2021 DOD
Appropriations Act. Appropriations Act.
Notes: LUSV is Project 3066 within PE (Program Element) 0603178N (line 27 in the Navy’s FY2021 research LUSV is Project 3066 within PE (Program Element) 0603178N (line 27 in the Navy’s FY2021 research
and development account). and development account). ~~MUSV~~MUSV is Project 3428 within PE 0603178N (line 27). is Project 3428 within PE 0603178N (line 27). ~~LUSV and MUSV~~LUSV and MUSV enabling enabling
technologies is Project 3067 within PE 0603178N (line 27). technologies is Project 3067 within PE 0603178N (line 27). ~~XLUUV~~XLUUV is Project 3394 within PE 0604536N (line is Project 3394 within PE 0604536N (line
89). 89). ~~HASC~~HASC is House Armed Services Committee; is House Armed Services Committee; ~~SASC~~SASC is Senate Armed Services Committee; is Senate Armed Services Committee; ~~HAC~~HAC is House is House
Appropriations Committee; Appropriations Committee; ~~SAC~~SAC is Senate Appropriations Committee; Conf. is conference agreement. is Senate Appropriations Committee; Conf. is conference agreement.
FY2021 National Defense Authorization Act (H.R. 6395/S. 4049)
House
The House Armed Services Committee, in its report (H.Rept. 116-442 of July 9, 2020) on H.R. The House Armed Services Committee, in its report (H.Rept. 116-442 of July 9, 2020) on H.R.
6395, recommended the funding levels shown in the HASC column of6395, recommended the funding levels shown in the HASC column of Table 2. The The
recommended reduction of $238.6 million (the entire requested amount) for LUSV is for “Two recommended reduction of $238.6 million (the entire requested amount) for LUSV is for “Two
additional Overlord vessels [being] excess to need.” The recommended increase of $45.0 million additional Overlord vessels [being] excess to need.” The recommended increase of $45.0 million
is for converting two Navy Expeditionary Fast Transport ships (EPF) into LUSV prototypes. is for converting two Navy Expeditionary Fast Transport ships (EPF) into LUSV prototypes.
(Page 391) The recommended reduction of $10 million for XLUUV is for “XLUUV late test and (Page 391) The recommended reduction of $10 million for XLUUV is for “XLUUV late test and
evaluation award.” (Page 393) evaluation award.” (Page 393)
Regarding the recommended funding for converting two EPFs into LUSV prototypes, H.Rept. Regarding the recommended funding for converting two EPFs into LUSV prototypes, H.Rept.
116-442 states116-442 states:
Expeditionary Fast Transport conversion to an unmanned surface vessel
The committee recognizes that unmanned surface vessels will play an essential role in The committee recognizes that unmanned surface vessels will play an essential role in
future fleets of the Navy and supports the development of this capability in a manner that future fleets of the Navy and supports the development of this capability in a manner that
responsibly fields this new capability. The committee continues to believe that the Navy’s responsibly fields this new capability. The committee continues to believe that the Navy’s
current acquisition strategy incorporates an excessive amount of concurrency and is overly current acquisition strategy incorporates an excessive amount of concurrency and is overly
focused on the hull. The desire to move immediately from development into serial focused on the hull. The desire to move immediately from development into serial
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production will only yield similar misfortunes as past shipbuilding programs with similar production will only yield similar misfortunes as past shipbuilding programs with similar
strategies. The committee believes the Navy should be primarily focused on the autonomy strategies. The committee believes the Navy should be primarily focused on the autonomy
piece of this capability and ensuring that technologies that will need to be developed to piece of this capability and ensuring that technologies that will need to be developed to
support autonomous operations are mature before being incorporated on a purpose built support autonomous operations are mature before being incorporated on a purpose built
vessel. A strategy that includes prototyping and test-of-ship systems such as propulsion, vessel. A strategy that includes prototyping and test-of-ship systems such as propulsion,
Command, Control, Communications, Computers and Intelligence, and other major Hull, Command, Control, Communications, Computers and Intelligence, and other major Hull,
Mechanical and Engineering systems prior to hull form decisions is a more prudent strategy Mechanical and Engineering systems prior to hull form decisions is a more prudent strategy
that may actually field this capability sooner. The committee is also concerned with what that may actually field this capability sooner. The committee is also concerned with what
level of manning if any will be required for these vessels. In briefings, the Navy has stated level of manning if any will be required for these vessels. In briefings, the Navy has stated
Congressional Research Service 25 link to page 29 Navy Large Unmanned Surface and Undersea Vehicles that initially these vessels will need to be minimally manned rather than fully unmanned in that initially these vessels will need to be minimally manned rather than fully unmanned in
order to maximize Concept of Operations (CONOPS) development. The committee order to maximize Concept of Operations (CONOPS) development. The committee
believes that the Navy should modify existing mature manned ships to support autonomous believes that the Navy should modify existing mature manned ships to support autonomous
operations in order to develop CONOPS rather than procuring new ships that will need to operations in order to develop CONOPS rather than procuring new ships that will need to
support manned operations, but will eventually be fully unmanned. support manned operations, but will eventually be fully unmanned.
Therefore, the committee recommends $45.0 million in PE 0603178N for the conversion Therefore, the committee recommends $45.0 million in PE 0603178N for the conversion
of two Expeditionary Fast Transport (EPF) ships to support autonomous operations and of two Expeditionary Fast Transport (EPF) ships to support autonomous operations and
accelerate CONOPS development. (Pages 43-44) accelerate CONOPS development. (Pages 43-44)
Section 230 of H.R. 6395 as reported by the committee states of H.R. 6395 as reported by the committee states:
SEC. 230. LIMITATIONS RELATING TO LARGE UNMANNED SURFACE VESSELS SEC. 230. LIMITATIONS RELATING TO LARGE UNMANNED SURFACE VESSELS
AND ASSOCIATED OFFEN SIVE WEAPON SYSTEMS. AND ASSOCIATED OFFEN SIVE WEAPON SYSTEMS.
(a) LIMITATION ON AVAILABILITY OF FUNDS FOR LUSV.— (a) LIMITATION ON AVAILABILITY OF FUNDS FOR LUSV.—
(1) LIMITATION.—None of the funds authorized to be appropriated by this Act or (1) LIMITATION.—None of the funds authorized to be appropriated by this Act or
otherwise made available for fiscal year 2021 for the Department of the Navy for the otherwise made available for fiscal year 2021 for the Department of the Navy for the
procurement of a large unmanned surface vessel may be obligated or expended until a procurement of a large unmanned surface vessel may be obligated or expended until a
period of 60 days has elapsed following the date on which the Secretary of the Navy period of 60 days has elapsed following the date on which the Secretary of the Navy
submits to the congressional defense committees the certification described in paragraph submits to the congressional defense committees the certification described in paragraph
(2). (2).
(2) CERTIFICATION DESCRIBED.—The certification described in this paragraph is a (2) CERTIFICATION DESCRIBED.—The certification described in this paragraph is a
written statement of the Secretary of the Navy certifying, with respect to any large written statement of the Secretary of the Navy certifying, with respect to any large
unmanned surface vessel to be procured by the Secretary, the following: unmanned surface vessel to be procured by the Secretary, the following:
(A) A hull system, a mechanical system, and an electrical system have been developed for (A) A hull system, a mechanical system, and an electrical system have been developed for
the vessel and each system— the vessel and each system—
(i) has attained a technology readiness level of seven or greater; and (i) has attained a technology readiness level of seven or greater; and
(ii) can be operated autonomously for a minimum of 30 days. (ii) can be operated autonomously for a minimum of 30 days.
(B) A command control system has been developed for the vessel and the system— (B) A command control system has been developed for the vessel and the system—
(i) can be operated autonomously; (i) can be operated autonomously;
(ii) includes autonomous detection; and (ii) includes autonomous detection; and
(iii) has attained a technology readiness level of seven or greater. (iii) has attained a technology readiness level of seven or greater.
(C) A detailed plan has been developed for measuring and demonstrating the reliability of (C) A detailed plan has been developed for measuring and demonstrating the reliability of
the vessel. the vessel.
(D) All payloads expected to be carried on the vessel have attained a technology readiness (D) All payloads expected to be carried on the vessel have attained a technology readiness
level of seven or greater. level of seven or greater.
(b) LIMITATION ON LUSV WEAPON INTEGRATION.— (b) LIMITATION ON LUSV WEAPON INTEGRATION.—
The Secretary of the Navy may not integrate any offensive weapon system into a large The Secretary of the Navy may not integrate any offensive weapon system into a large
unmanned surface vessel until the date on which the Secretary of the Defense certifies to unmanned surface vessel until the date on which the Secretary of the Defense certifies to
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the congressional defense committees that any large unmanned surface vessel that employs the congressional defense committees that any large unmanned surface vessel that employs
offensive weapons will comply with the law of armed conflict. Such certification shall offensive weapons will comply with the law of armed conflict. Such certification shall
include a detailed explanation of how such compliance will be achieved. include a detailed explanation of how such compliance will be achieved.
Senate
The Senate Armed Services Committee, in its report (S.Rept. 116-236 of June 24, 2020) on S. The Senate Armed Services Committee, in its report (S.Rept. 116-236 of June 24, 2020) on S.
4049, recommended the funding levels shown in the SASC column of4049, recommended the funding levels shown in the SASC column of Table 2. The The
recommended reductions to zero funding for LUSV, MUSV, and LUSV and MUSV enabling recommended reductions to zero funding for LUSV, MUSV, and LUSV and MUSV enabling
Congressional Research Service 26 Navy Large Unmanned Surface and Undersea Vehicles technologies are for “Excess procurement ahead of satisfactory testing.” (Page 504) The technologies are for “Excess procurement ahead of satisfactory testing.” (Page 504) The
recommended reduction of $20 million for XLUUV is for “Orca UUV [XLUUV] testing delay recommended reduction of $20 million for XLUUV is for “Orca UUV [XLUUV] testing delay
and uncertified test strategy” ($10.0 million) and “Snakehead UUV uncertified test strategy” ($10 and uncertified test strategy” ($10.0 million) and “Snakehead UUV uncertified test strategy” ($10
million). (Page 507) million). (Page 507)
Section 122 of S. 4049 as reported by the committee states of S. 4049 as reported by the committee states:
SEC. 122. LIMITATION ON NAVY MEDIUM AND LARGE UNMANNED SURFACE SEC. 122. LIMITATION ON NAVY MEDIUM AND LARGE UNMANNED SURFACE
VESSELS. VESSELS.
(a) MILESTONE B APPROVAL REQUIREMENTS.—Milestone B approval may not be (a) MILESTONE B APPROVAL REQUIREMENTS.—Milestone B approval may not be
granted for a covered program unless such program accomplishes prior to and incorporates granted for a covered program unless such program accomplishes prior to and incorporates
into such approval— into such approval—
(1) qualification by the Senior Technical Authority of— (1) qualification by the Senior Technical Authority of—
(A) at least two different main propulsion engines and ancillary equipment, including the (A) at least two different main propulsion engines and ancillary equipment, including the
fuel and lube oil systems; and fuel and lube oil systems; and
(B) at least two different electrical genera tors and ancillary equipment; (B) at least two different electrical genera tors and ancillary equipment;
(2) final results of test programs of engineering development models or prototypes for (2) final results of test programs of engineering development models or prototypes for
critical systems specified by the Senior Technical Authority in their final form, fit, and critical systems specified by the Senior Technical Authority in their final form, fit, and
function and in a realistic environment; and function and in a realistic environment; and
(3) a determination by the milestone decision authority of the minimum number of vessels, (3) a determination by the milestone decision authority of the minimum number of vessels,
discrete test events, performance parameters to be tested, and schedule required to discrete test events, performance parameters to be tested, and schedule required to
complete initial operational test and evaluation and demonstrate operational suitability and complete initial operational test and evaluation and demonstrate operational suitability and
operational effectiveness. operational effectiveness.
(b) QUALIFICATION REQUIREMENTS.—The qualification required in subsection (b) QUALIFICATION REQUIREMENTS.—The qualification required in subsection
(a)(1) shall include a land-based operational demonstration of such equipment in the (a)(1) shall include a land-based operational demonstration of such equipment in the
vessel-representative form, fit, and function for not less than 1,080 continuous hours vessel-representative form, fit, and function for not less than 1,080 continuous hours
without preventative maintenance, corrective maintenance, emergent repair, or any other without preventative maintenance, corrective maintenance, emergent repair, or any other
form of repair or maintenance. form of repair or maintenance.
(c) REQUIREMENT TO USE QUALIFIED ENGINES AND GENERATORS.—The (c) REQUIREMENT TO USE QUALIFIED ENGINES AND GENERATORS.—The
Secretary of the Navy shall require that covered programs use only main propulsion Secretary of the Navy shall require that covered programs use only main propulsion
engines and electrical generators that are qualified under sub section (a)(1). engines and electrical generators that are qualified under sub section (a)(1).
(d) LIMITATION.—The Secretary of the Navy may not release a detail design or (d) LIMITATION.—The Secretary of the Navy may not release a detail design or
construction request for proposals or obligate funds from a procurement account for a construction request for proposals or obligate funds from a procurement account for a
covered program until such program receives Milestone B approval and the milestone covered program until such program receives Milestone B approval and the milestone
decision authority notifies the congressional defense committees, in writing, of the actions decision authority notifies the congressional defense committees, in writing, of the actions
taken to comply with the requirements under this section. taken to comply with the requirements under this section.
(e) DEFINITIONS.—In this section: (e) DEFINITIONS.—In this section:
(1) The term ‘‘covered program’’ means a program for— (1) The term ‘‘covered program’’ means a program for—
(A) medium unmanned surface vessels; or (A) medium unmanned surface vessels; or
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(B) large unmanned surface vessels. (B) large unmanned surface vessels.
(2) The term ‘‘Milestone B approval’’ has the meaning given the term in section 2366(e)(7) (2) The term ‘‘Milestone B approval’’ has the meaning given the term in section 2366(e)(7)
of title 10, United States Code. of title 10, United States Code.
(3) The term ‘‘milestone decision authority’’ means the official within the Department of (3) The term ‘‘milestone decision authority’’ means the official within the Department of
Defense designated with the overall responsibility and authority for acquisition decisions Defense designated with the overall responsibility and authority for acquisition decisions
for the program, including authority to approve entry of the program into the next phase of for the program, including authority to approve entry of the program into the next phase of
the acquisition process. the acquisition process.
Congressional Research Service 27 Navy Large Unmanned Surface and Undersea Vehicles (4) The term ‘‘Senior Technical Authority’’ has the meaning given the term in section (4) The term ‘‘Senior Technical Authority’’ has the meaning given the term in section
8669b of title 10, United States Code. 8669b of title 10, United States Code.
Regarding Section 122, S.Rept. 116-236 states Regarding Section 122, S.Rept. 116-236 states:
Limitation on Navy medium and large unmanned surface vessels (sec. 122)
The committee recommends a provision that would require that certain technical conditions The committee recommends a provision that would require that certain technical conditions
be met prior to Milestone B approval for medium and large unmanned surface vessels. be met prior to Milestone B approval for medium and large unmanned surface vessels.
The committee notes that the budget request provides for the prototyping and testing of The committee notes that the budget request provides for the prototyping and testing of
Medium and Large Unmanned Surface Vessels (MUSVs and LUSVs), including Medium and Large Unmanned Surface Vessels (MUSVs and LUSVs), including
procurement of up to two additional LUSVs in conjunction with a Strategic Capabilities procurement of up to two additional LUSVs in conjunction with a Strategic Capabilities
Office (SCO) initiative. The committee understands that the four LUSVs procured by the Office (SCO) initiative. The committee understands that the four LUSVs procured by the
SCO beginning in fiscal year 2018, at a cost of more than $510 million, are sufficient to SCO beginning in fiscal year 2018, at a cost of more than $510 million, are sufficient to
achieve the objectives of the SCO initiative, which is scheduled to be completed in the achieve the objectives of the SCO initiative, which is scheduled to be completed in the
fourth quarter of fiscal year 2021. fourth quarter of fiscal year 2021.
The committee further notes that the budget request includes plans to award the LUSV The committee further notes that the budget request includes plans to award the LUSV
Detail Design and Construction (DD&C) contract in fiscal year 2022 and transition LUSV Detail Design and Construction (DD&C) contract in fiscal year 2022 and transition LUSV
to a program of record in fiscal year 2023. to a program of record in fiscal year 2023.
The committee remains concerned that the budget request’s concurrent approach to LUSV The committee remains concerned that the budget request’s concurrent approach to LUSV
design, technology development, and integration as well as a limited understanding of the design, technology development, and integration as well as a limited understanding of the
LUSV concept of employment, requirements, and reliability for envisioned missions pose LUSV concept of employment, requirements, and reliability for envisioned missions pose
excessive acquisition risk for additional LUSV procurement in fiscal year 2021. The excessive acquisition risk for additional LUSV procurement in fiscal year 2021. The
committee is also concerned by the unclear policy implications of LUSVs, including ill-committee is also concerned by the unclear policy implications of LUSVs, including ill-
defined international unmanned surface vessel standards and the legal status of armed or defined international unmanned surface vessel standards and the legal status of armed or
potentially armed LUSVs. potentially armed LUSVs.
Additionally, the committee notes that the Navy’s most recent shipbuilding plan, ‘‘Report Additionally, the committee notes that the Navy’s most recent shipbuilding plan, ‘‘Report
to Congress on the Annual Long-Range Plan for Construction of Naval Vessels for Fiscal to Congress on the Annual Long-Range Plan for Construction of Naval Vessels for Fiscal
Year 2020,’’ acknowledges similar issues: ‘‘Unmanned and optionally-manned systems Year 2020,’’ acknowledges similar issues: ‘‘Unmanned and optionally-manned systems
are not accounted for in the overall battle force[.] .are not accounted for in the overall battle force[.] . . .. The physical challenges of extended . The physical challenges of extended
operations at sea across the spectrum of competition and conflict, the concepts of operations at sea across the spectrum of competition and conflict, the concepts of
operations for these platforms, and the policy challenges associated with employing deadly operations for these platforms, and the policy challenges associated with employing deadly
force from autonomous vehicles must be well understood prior to replacing accountable force from autonomous vehicles must be well understood prior to replacing accountable
battle force ships.’’ battle force ships.’’
The committee believes that further procurement of MUSVs and LUSVs should occur only The committee believes that further procurement of MUSVs and LUSVs should occur only
after the lessons learned from the current SCO initiative have been incorporated into the after the lessons learned from the current SCO initiative have been incorporated into the
system specification and additional risk reduction actions are taken. system specification and additional risk reduction actions are taken.
A specific area of technical concern for the committee is the Navy requirement for MUSVs A specific area of technical concern for the committee is the Navy requirement for MUSVs
and LUSVs to operate continuously at sea for at least 30 days without preventative and LUSVs to operate continuously at sea for at least 30 days without preventative
maintenance, corrective maintenance, or emergent repairs. The committee is unaware of maintenance, corrective maintenance, or emergent repairs. The committee is unaware of
any unmanned vessel of the size or complexity envisioned for MUSV or LUSV that has any unmanned vessel of the size or complexity envisioned for MUSV or LUSV that has
demonstrated at least 30 days of such operation. demonstrated at least 30 days of such operation.
The committee understands that the SCO prototype vessels that are intended to provide The committee understands that the SCO prototype vessels that are intended to provide
risk reduction for this program have demonstrated between 2 to 3 days of continuous risk reduction for this program have demonstrated between 2 to 3 days of continuous
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operation. The committee also understands that the SCO vessels are approximately 25 operation. The committee also understands that the SCO vessels are approximately 25
percent the size by tonnage of a LUSV, which may limit the applicability of lessons learned percent the size by tonnage of a LUSV, which may limit the applicability of lessons learned
and risk reduction from the SCO vessels to the MUSV and LUSV programs. Among other and risk reduction from the SCO vessels to the MUSV and LUSV programs. Among other
critical subsystems, the committee views the main engines and electrical generators as key critical subsystems, the committee views the main engines and electrical generators as key
USV mechanical and electrical subsystems whose reliability is critical to ensuring USV mechanical and electrical subsystems whose reliability is critical to ensuring
successful operations at sea for at least 30 continuous days. successful operations at sea for at least 30 continuous days.
Accordingly, this provision would require at least two main engines and electrical Accordingly, this provision would require at least two main engines and electrical
generators, including ancillary equipment, to be formally qualified by the Navy, including generators, including ancillary equipment, to be formally qualified by the Navy, including
Congressional Research Service 28 Navy Large Unmanned Surface and Undersea Vehicles a successful demonstration of at least 30 days of continuous operation prior to the LUSV a successful demonstration of at least 30 days of continuous operation prior to the LUSV
or MUSV Milestone B approval and would require the use of such engines and generators or MUSV Milestone B approval and would require the use of such engines and generators
in future USVs. The provision would also require the Senior Technical Authority and in future USVs. The provision would also require the Senior Technical Authority and
Milestone Decision Authority to take additional actions related to reducing the technical Milestone Decision Authority to take additional actions related to reducing the technical
risk of these programs prior to a Milestone B approval.risk of these programs prior to a Milestone B approval.
The committee views the qualification of these critical subsystems as an essential The committee views the qualification of these critical subsystems as an essential
prototyping step necessary to provide a solid technical foundation for the MUSV and prototyping step necessary to provide a solid technical foundation for the MUSV and
LUSV programs. Rather than delaying these programs, the committee believes that LUSV programs. Rather than delaying these programs, the committee believes that
qualified engines and generators will enable the delivery of capable, reliable, and qualified engines and generators will enable the delivery of capable, reliable, and
sustainable USVs that meet the needs of fleet commanders faster than the plan contained sustainable USVs that meet the needs of fleet commanders faster than the plan contained
in the budget request. (Pages 9-10) in the budget request. (Pages 9-10)
Section 237 of S. 4049 as reported by the committee states of S. 4049 as reported by the committee states:
SEC. 237. LIMITATION ON CONTRACT AWARDS FOR CERTAIN UNMANNED SEC. 237. LIMITATION ON CONTRACT AWARDS FOR CERTAIN UNMANNED
VESSELS. VESSELS.
(a) LIMITATION.—None of the funds authorized to be appropriated for fiscal year 2021 (a) LIMITATION.—None of the funds authorized to be appropriated for fiscal year 2021
by section 201 for research, development, test, and evaluation may be used for the award by section 201 for research, development, test, and evaluation may be used for the award
of a contract for a covered vessel until the date that is 30 days after the date on which the of a contract for a covered vessel until the date that is 30 days after the date on which the
Under Secretary of Defense for Research and Engineering submits to the congressional Under Secretary of Defense for Research and Engineering submits to the congressional
defense committees a report and certification described in subsection (c) for such contract defense committees a report and certification described in subsection (c) for such contract
and covered vessel. and covered vessel.
(b) COVERED VESSELS.—For purposes of this section, a covered vessel is one of the (b) COVERED VESSELS.—For purposes of this section, a covered vessel is one of the
following: following:
(1) A large unmanned surface vessel (LUSV). (1) A large unmanned surface vessel (LUSV).
(2) A medium unmanned surface vehicle (MUSV). (2) A medium unmanned surface vehicle (MUSV).
(3) A large displacement unmanned undersea vehicle (LDUUV). (3) A large displacement unmanned undersea vehicle (LDUUV).
(4) An extra-large unmanned undersea vehicle (XLUUV). (4) An extra-large unmanned undersea vehicle (XLUUV).
(c) REPORT AND CERTIFICATION DESCRIBED.—A report and certification (c) REPORT AND CERTIFICATION DESCRIBED.—A report and certification
described in this subsection regarding a contract for a covered vessel is— described in this subsection regarding a contract for a covered vessel is—
(1) a report— (1) a report—
(A) submitted to the congressional defense committees not later than 60 days after the date (A) submitted to the congressional defense committees not later than 60 days after the date
of the completion of an independent technical risk assessment for such covered vessel; and of the completion of an independent technical risk assessment for such covered vessel; and
(B) on the findings of the Under Secretary with respect to such assessment; and (B) on the findings of the Under Secretary with respect to such assessment; and
(2) a certification, submitted to the congressional defense committees with the report (2) a certification, submitted to the congressional defense committees with the report
described in paragraph (1), that certifies that— described in paragraph (1), that certifies that—
(A) the Under Secretary has determined, in conjunction with the Senior Technical (A) the Under Secretary has determined, in conjunction with the Senior Technical
Authority designated under section 8669b(a)(1) of title 10, United States Code, for the class Authority designated under section 8669b(a)(1) of title 10, United States Code, for the class
of naval vessels that includes the covered vessel, that the critical mission, hull, mechanical, of naval vessels that includes the covered vessel, that the critical mission, hull, mechanical,
and electrical subsystems of the covered vessel— and electrical subsystems of the covered vessel—
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(i) have been demonstrated in vessel representative form, fit, and function; and (i) have been demonstrated in vessel representative form, fit, and function; and
(ii) have achieved performance levels equal to or greater than applicable Department of (ii) have achieved performance levels equal to or greater than applicable Department of
Defense threshold requirements for such class of vessels; and Defense threshold requirements for such class of vessels; and
(B) such contract is necessary to meet Department research, development, test, and (B) such contract is necessary to meet Department research, development, test, and
evaluation objectives for such covered vessel that cannot otherwise be met through further evaluation objectives for such covered vessel that cannot otherwise be met through further
land-based subsystem prototyping or other demonstration approaches. land-based subsystem prototyping or other demonstration approaches.
Congressional Research Service 29 Navy Large Unmanned Surface and Undersea Vehicles (d) (d)
CRITICAL CRITICAL
MISSION, MISSION,
HULL, HULL,
MECHANICAL, MECHANICAL,
AND AND
ELECTRICAL ELECTRICAL
SUBSYSTEMS DEFINED.—In this section, the term ‘‘critical mission, hull, mechanical, SUBSYSTEMS DEFINED.—In this section, the term ‘‘critical mission, hull, mechanical,
and electrical subsystems’’, with respect to a covered vessel, includes the following and electrical subsystems’’, with respect to a covered vessel, includes the following
subsystems: subsystems:
(1) Command, control, communications, computers, intelligence, surveillance, and (1) Command, control, communications, computers, intelligence, surveillance, and
reconnaissance. reconnaissance.
(2) Autonomous vessel navigation, vessel control, contact management, and contact (2) Autonomous vessel navigation, vessel control, contact management, and contact
avoidance. avoidance.
(3) Communications security, including cryptopgraphy, encryption, and decryption. (3) Communications security, including cryptopgraphy, encryption, and decryption.
(4) Main engines, including the lube oil, fuel oil, and other supporting systems. (4) Main engines, including the lube oil, fuel oil, and other supporting systems.
(5) Electrical generation and distribution, including supporting systems. (5) Electrical generation and distribution, including supporting systems.
(6) Military payloads. (6) Military payloads.
(7) Any other subsystem identified as critical by the Senior Technical Authority designated (7) Any other subsystem identified as critical by the Senior Technical Authority designated
under section 8669b(a)(1) of title 10, United States Code, for the class of naval vessels that under section 8669b(a)(1) of title 10, United States Code, for the class of naval vessels that
includes the cov red vessel. includes the cov red vessel.
Regarding Section 237, S.Rept. 116-236 states Regarding Section 237, S.Rept. 116-236 states:
Limitation on contract awards for certain unmanned vessels (sec. 237)
The committee recommends a provision that would require the submission of a The committee recommends a provision that would require the submission of a
certification by the Under Secretary of Defense for Research and Engineering to the certification by the Under Secretary of Defense for Research and Engineering to the
congressional defense committees prior to the Department of Defense’s contracting for congressional defense committees prior to the Department of Defense’s contracting for
certain vessels. certain vessels.
The committee is concerned that an excessive number of unmanned surface and undersea The committee is concerned that an excessive number of unmanned surface and undersea
vessels (USVs and UUVs) are being acquired prematurely using Research, Development, vessels (USVs and UUVs) are being acquired prematurely using Research, Development,
Test, and Evaluation funds and that these vessels may include subsystems that lack Test, and Evaluation funds and that these vessels may include subsystems that lack
sufficient technical reliability and technological maturity to allow the vessels to meet sufficient technical reliability and technological maturity to allow the vessels to meet
threshold requirements. threshold requirements.
The committee seeks to avoid contracting for USVs and UUVs when the technical The committee seeks to avoid contracting for USVs and UUVs when the technical
reliability and technological maturity of subsystems critical to propulsion and electrical reliability and technological maturity of subsystems critical to propulsion and electrical
distribution or the military purposes of the vessels are either unknown or known to be distribution or the military purposes of the vessels are either unknown or known to be
insufficient. For example, the committee notes the Navy requirement for Medium and insufficient. For example, the committee notes the Navy requirement for Medium and
Large USVs (MUSV and LUSV) to operate continuously at sea for at least 30 days without Large USVs (MUSV and LUSV) to operate continuously at sea for at least 30 days without
preventative maintenance, corrective maintenance, or emergent repairs. The committee is preventative maintenance, corrective maintenance, or emergent repairs. The committee is
unaware of any unmanned vessel of the size or complexity envisioned for MUSV or LUSV unaware of any unmanned vessel of the size or complexity envisioned for MUSV or LUSV
that has demonstrated at least 30 days of such operation. that has demonstrated at least 30 days of such operation.
The committee understands that the Strategic Capabilities Office (SCO) prototype vessels The committee understands that the Strategic Capabilities Office (SCO) prototype vessels
intended to provide risk reduction for the Navy’s LUSV program have demonstrated a intended to provide risk reduction for the Navy’s LUSV program have demonstrated a
maximum of 2 to 3 days of continuous operation. The committee also understands that the maximum of 2 to 3 days of continuous operation. The committee also understands that the
SCO vessels are approximately 25 percent the size by tonnage of a Navy LUSV. As a SCO vessels are approximately 25 percent the size by tonnage of a Navy LUSV. As a
result, the committee is concerned that the applicability of lessons learned and risk result, the committee is concerned that the applicability of lessons learned and risk
reduction from the SCO vessels to the Navy MUSV and LUSV programs will be limited. reduction from the SCO vessels to the Navy MUSV and LUSV programs will be limited.
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The committee views prior and successful land-based prototyping of individual critical The committee views prior and successful land-based prototyping of individual critical
subsystems as essential to providing a solid technical foundation for USV and UUV subsystems as essential to providing a solid technical foundation for USV and UUV
programs. Rather than delaying these programs, the committee believes that a deliberate programs. Rather than delaying these programs, the committee believes that a deliberate
engineering-based subsystem prototyping approach will enable the delivery of capable, engineering-based subsystem prototyping approach will enable the delivery of capable,
reliable, and sustainable USVs and UUVs that meet the needs of fleet commanders faster reliable, and sustainable USVs and UUVs that meet the needs of fleet commanders faster
than the plan contained in the budget request, which assumes that several unproven or non-than the plan contained in the budget request, which assumes that several unproven or non-
existent subsystems will rapidly materialize to meet the Navy’s requirements for these existent subsystems will rapidly materialize to meet the Navy’s requirements for these
vessels. (Pages 76-77) vessels. (Pages 76-77)
Congressional Research Service 30 Navy Large Unmanned Surface and Undersea Vehicles S.Rept. 116-236 also statesS.Rept. 116-236 also states:
Testbed for autonomous ship systems
The budget request included $122.3 million in Research, Development, Test, and The budget request included $122.3 million in Research, Development, Test, and
Evaluation (RDT&E), Navy, for PE 62123N Force Protection Applied Research. Evaluation (RDT&E), Navy, for PE 62123N Force Protection Applied Research.
The committee notes that a key technology gap for long-duration autonomous ship The committee notes that a key technology gap for long-duration autonomous ship
operation lies in the robustness and resiliency of the hull and machinery plant. The operation lies in the robustness and resiliency of the hull and machinery plant. The
committee also notes that autonomous ships will be expected to operate for months committee also notes that autonomous ships will be expected to operate for months
between human-assisted maintenance and that autonomous machinery must be robust and between human-assisted maintenance and that autonomous machinery must be robust and
resilient in order to avoid failure, repair damage, or redirect platforms as needed. The resilient in order to avoid failure, repair damage, or redirect platforms as needed. The
committee notes the development of digital-twin technologies that allow for predictive or committee notes the development of digital-twin technologies that allow for predictive or
automated maintenance and improved operations and logistics and help fill a critical gap automated maintenance and improved operations and logistics and help fill a critical gap
that has been identified in autonomous systems. that has been identified in autonomous systems.
Therefore, the committee recommends an increase of $3.0 million, in RDT&E, Navy, for Therefore, the committee recommends an increase of $3.0 million, in RDT&E, Navy, for
PE 62123N for the development of a testbed for autonomous ship systems. (Page 95) PE 62123N for the development of a testbed for autonomous ship systems. (Page 95)
S.Rept. 116-236 also states S.Rept. 116-236 also states:
Unmanned surface vessel development
The budget request included $21.5 billion in Research, Development, Test, and Evaluation The budget request included $21.5 billion in Research, Development, Test, and Evaluation
(RDT&E), Navy, of which $464.0 million was for PE 63178N Medium and Large (RDT&E), Navy, of which $464.0 million was for PE 63178N Medium and Large
Unmanned Surface Vehicles and $38.4 million was for PE 63573N Advanced Surface Unmanned Surface Vehicles and $38.4 million was for PE 63573N Advanced Surface
Machinery Systems. Machinery Systems.
The committee notes that the budget request provides for the prototyping and testing of The committee notes that the budget request provides for the prototyping and testing of
Medium and Large Unmanned Surface Vessels (MUSVs and LUSVs), including Medium and Large Unmanned Surface Vessels (MUSVs and LUSVs), including
procurement of up to two additional LUSVs in conjunction with a Strategic Capabilities procurement of up to two additional LUSVs in conjunction with a Strategic Capabilities
Office (SCO) initiative. The committee understands that the 4 LUSVs procured by the SCO Office (SCO) initiative. The committee understands that the 4 LUSVs procured by the SCO
beginning in fiscal year 2018, at a cost of more than $510 million, are sufficient to achieve beginning in fiscal year 2018, at a cost of more than $510 million, are sufficient to achieve
the objectives of the SCO initiative, which is scheduled to be completed in the fourth the objectives of the SCO initiative, which is scheduled to be completed in the fourth
quarter of fiscal year 2021. quarter of fiscal year 2021.
The committee believes that further procurement of MUSVs and LUSVs should occur only The committee believes that further procurement of MUSVs and LUSVs should occur only
after the lessons learned from the current SCO initiative have been incorporated into the after the lessons learned from the current SCO initiative have been incorporated into the
system specification and additional risk reduction actions are taken. system specification and additional risk reduction actions are taken.
A specific area of technical concern for the committee is the Navy requirement for MUSVs A specific area of technical concern for the committee is the Navy requirement for MUSVs
and LUSVs to operate continuously at sea for at least 30 days without preventative and LUSVs to operate continuously at sea for at least 30 days without preventative
maintenance, corrective maintenance, or emergent repairs. The committee is unaware of maintenance, corrective maintenance, or emergent repairs. The committee is unaware of
any unmanned vessel of the size or complexity envisioned for MUSV or LUSV that has any unmanned vessel of the size or complexity envisioned for MUSV or LUSV that has
demonstrated at least 30 days of such operation. demonstrated at least 30 days of such operation.
The committee understands that the SCO prototype vessels that are intended to provide The committee understands that the SCO prototype vessels that are intended to provide
risk reduction for these programs have demonstrated between 2 to 3 days of continuous risk reduction for these programs have demonstrated between 2 to 3 days of continuous
operation. The committee also understands that the SCO vessels are approximately 25 operation. The committee also understands that the SCO vessels are approximately 25
percent the size by tonnage of a LUSV, which may limit the applicability of lessons learned percent the size by tonnage of a LUSV, which may limit the applicability of lessons learned
and risk reduction from the SCO vessels to the MUSV and LUSV programs. Among other and risk reduction from the SCO vessels to the MUSV and LUSV programs. Among other
critical subsystems, the committee views the main engines and electrical generators in critical subsystems, the committee views the main engines and electrical generators in
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particular as key USV mechanical and electrical subsystems whose reliability is critical to particular as key USV mechanical and electrical subsystems whose reliability is critical to
ensuring successful operations at sea for at least 30 continuous days. ensuring successful operations at sea for at least 30 continuous days.
The committee also notes that additional funding is necessary to accelerate completion of The committee also notes that additional funding is necessary to accelerate completion of
the Integrated Power and Energy Systems test facility (ITF) to achieve full test capability the Integrated Power and Energy Systems test facility (ITF) to achieve full test capability
in fiscal year 2023, consistent with section 131 of the National Defense Authorization Act in fiscal year 2023, consistent with section 131 of the National Defense Authorization Act
for Fiscal Year 2020 (Public Law 116–92), as well as the qualification of silicon carbide for Fiscal Year 2020 (Public Law 116–92), as well as the qualification of silicon carbide
power modules. power modules.
Congressional Research Service 31 link to page 29 Navy Large Unmanned Surface and Undersea Vehicles Accordingly, the committee recommends a decrease of $464.0 million, for a total of $0, in Accordingly, the committee recommends a decrease of $464.0 million, for a total of $0, in
RDT&E, Navy, for PE 63178N, and an increase of $200.0 million, for a total of $238.4 RDT&E, Navy, for PE 63178N, and an increase of $200.0 million, for a total of $238.4
million in RDT&E, Navy, for PE 63573N. million in RDT&E, Navy, for PE 63573N.
The committee’s intent is that the increased funding in PE 63178N be used for: the USV The committee’s intent is that the increased funding in PE 63178N be used for: the USV
main engine and electrical generator qualification testing directed elsewhere in this Act main engine and electrical generator qualification testing directed elsewhere in this Act
($70.0 million); USV autonomy development, which may include conversion of existing ($70.0 million); USV autonomy development, which may include conversion of existing
vessels ($45.0 million); accelerating ITF testing ($75.0 million); and accelerating the vessels ($45.0 million); accelerating ITF testing ($75.0 million); and accelerating the
qualification of silicon carbide power modules ($10.0 million). (Pages 97-98) qualification of silicon carbide power modules ($10.0 million). (Pages 97-98)
S.Rept. 116-236 also states S.Rept. 116-236 also states:
Advanced undersea prototyping
The budget request included $21.5 billion in Research, Development, Test, and Evaluation The budget request included $21.5 billion in Research, Development, Test, and Evaluation
(RDT&E), Navy, of which $115.9 million was for PE 64536N advanced undersea (RDT&E), Navy, of which $115.9 million was for PE 64536N advanced undersea
prototyping. prototyping.
The committee notes that the Snakehead and Orca [XLUUV] test strategies require updates The committee notes that the Snakehead and Orca [XLUUV] test strategies require updates
to enable certification by the Director of Operational Test and Evaluation in accordance to enable certification by the Director of Operational Test and Evaluation in accordance
with the Senate report accompanying the Department of Defense Appropriations Bill, with the Senate report accompanying the Department of Defense Appropriations Bill,
2020, incorporated into the Consolidated Appropriations Act, 2020 (S. Rept. 116–103). 2020, incorporated into the Consolidated Appropriations Act, 2020 (S. Rept. 116–103).
Additionally, the committee is aware of Orca testing delays. Additionally, the committee is aware of Orca testing delays.
Accordingly, the committee recommends a decrease of $20.0 million, for a total of $95.9 Accordingly, the committee recommends a decrease of $20.0 million, for a total of $95.9
million, in RDT&E, Navy, for PE 64536N. (Page 100) million, in RDT&E, Navy, for PE 64536N. (Page 100)
FY2021 DOD Appropriations Act (H.R. 7617)
House
The House The House ~~Armed Services~~Appropriations Committee, in its report (H.Rept. 116-453 of July 16, 2020) on H.R. Committee, in its report (H.Rept. 116-453 of July 16, 2020) on H.R.
7617, recommended the funding levels shown in the HAC column of7617, recommended the funding levels shown in the HAC column of Table 2. The recommended The recommended
reduction of $159.3 million for LUSV is for “LUSV additional prototypes.” (Page 266) The reduction of $159.3 million for LUSV is for “LUSV additional prototypes.” (Page 266) The
recommended reduction of $45.5 million for LUSV and MUSV enabling technologies is for recommended reduction of $45.5 million for LUSV and MUSV enabling technologies is for
“Unmanned surface vehicle enabling capabilities—payload program reduction.” (Page 266) The “Unmanned surface vehicle enabling capabilities—payload program reduction.” (Page 266) The
recommended reduction of $35.626 million for XLUUV is for “Test and evaluation delays.” recommended reduction of $35.626 million for XLUUV is for “Test and evaluation delays.”
(Page 268) (Page 268)

Author Information Ronald O'Rourke Specialist in Naval Affairs Congressional Research Service Congressional Research Service
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Navy Large Unmanned Surface and Undersea Vehicles

~~Author Information~~

~~Ronald O'Rourke~~

~~Specialist in Naval Affairs~~

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