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

Changes from February 25, 2021 to March 17, 2021

This page shows textual changes in the document between the two versions indicated in the dates above. Textual matter removed in the later version is indicated with ~~red strikethrough~~ and textual matter added in the later version is indicated with blue.

Navy Large Unmanned Surface and Undersea
~~February 25~~March 17, 2021 , 2021
Vehicles: Background and Issues for Congress
Ronald O'Rourke
The Navy in FY2021 The Navy in FY2021 and beyond wants to develop and procure three types of large unmanned 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 requested $579.9 million(XLUUVs). The Navy requested $579.9 million in FY2021in FY2021 research and development funding research and development funding

for these large UVs and their enabling technologies. As part of its action on the Navy’s proposed for these large UVs and their enabling technologies. As part of its action on the Navy’s proposed
FY2021FY2021 budget, Congress provided $238.9 million. budget, Congress provided $238.9 million.
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. The Navy wants to employ accelerated acquisition strategies for 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 more quickly. The Navy’s desire to employ these accelerated 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 urgency that the Navy attaches to fielding large UVs for meeting 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. 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 particularly in the nearer term as the Navy works out LUSV enabling technologies and operational ~~concepts.~~
co ncepts. The Navy defines MUSVs as being 45 feet to 190 feet long, with displacements of roughly 500 tons The Navy defines MUSVs as being 45 feet to 190 feet long, with displacements of roughly 500 tons . The Navy wants . 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.FY2023. On July 13, 2020,On July 13, 2020, the Navy announced that it had awarded “a $34,999,948 contract to L3 Technologies, Inc. for the 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 did not request funding for the XLUUVs at a rate of two per year starting in FY2023. The Navy’s FY2021 budget submission did not request funding for the
procurement of additional XLUUVs in FY2021procurement of additional XLUUVs in FY2021 or FY2022. 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 on the programs. programs; and whether the Navy has accurately priced the work it is proposing to do on the programs.
In marking up the Navy’s proposed FY2020 and FY2021 budgets, some of the congressional defense committees expressed In marking up the Navy’s proposed FY2020 and FY2021 budgets, some of the congressional defense committees expressed
concerns over whether the Navy’s accelerated acquisition strategies provided enough time to adequately develop concepts of concerns over whether the 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 to the markups to its FY2020 operations and key technologies for these large UVs, particularly the LUSV. In response to the markups to its FY2020
budget, the Navy’s FY2021 budget proposed modifying the acquisition strategy for the LUSV program so as to provide more budget, the Navy’s FY2021 budget proposed modifying 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 time for developing operational concepts and key technologies before entering into serial production of ~~deployable~~d eployable units. units.
Congressional Research Service Congressional Research Service

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 requested $579.9 than the Navy’s current fleet architecture. The Navy requested $579.9 ~~million~~mil ion in FY2021 research in FY2021 research
and development funding for these large UVs and their enabling technologies. 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 funding requests for these large UVs. The Navy’s proposals for developing and procuring and 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 issues could them pose a number of oversight issues for Congress. Congress’s decisions on these issues could
~~substantially~~substantial y affect Navy capabilities and funding requirements and the shipbuilding and UV affect Navy capabilities and funding requirements and the shipbuilding and UV
industrial bases. 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~~smal er USVs and UUVs, USVs and UUVs, ~~as well~~ as wel as unmanned aerial vehicles (UAVs) of various sizes. Other 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 weapons, artificial ~~intelligence,~~ intel igence, and cyber capabilities—that the Navy says it is pursuing to meet and cyber capabilities—that the Navy says it is pursuing to meet
emerging military emerging military ~~challenges~~chal enges, particularly from China.2 UVs can be equipped with sensors, , 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 technological advancements) autonomously.3 They can be ~~individually~~individual y less expensive to procure less expensive to procure

~~1 See,~~ 1 See, for example, CRSfor example, CRS Report R45519, Report R45519, The Army’s Optionally Manned Fighting Vehicle (OMFV) Program:
Background and Issues for Congress, by Andrew, by Andrew Feickert ~~Feickert~~, and CRS, and CRS Report R45392, Report R45392, U.S. Ground Forces Robotics and
~~Autonomous Systems~~Autonom ous System s (RAS) and Artificial Intelligence (AI): Considerations for Congress,, coordinated by Andrew coordinated by Andrew
FeickertFeickert . .
2 See,2 See, for example, Department of the Navy, for example, Department of the Navy, Highlights of the Department of the Navy FY 2021 Budget, inside front , inside front
cover (“cover (“~~The~~T he Bottom Line”). For a CRS Bottom Line”). For a CRS report on Navy lasers, electromagnetic railguns, and the gunreport on Navy lasers, electromagnetic railguns, and the gun -launched-launched guided guided
projectile (also known asprojectile (also known as the hypervelocity projectile), see CRSthe hypervelocity projectile), see CRS Report R44175, Report R44175, Navy Lasers, Railgun, and Gun-
Launched Guided Projectile: Background and Issues for Congress, by Ronald O'Rourke. For a CRS, by Ronald O'Rourke. For a CRS report on report on
advanced military technologies, see CRSadvanced military technologies, see CRS In Focus IF11105, In Focus IF11105, Defense ~~Primer: Emerging~~Prim er: Em erging Technologies, by Kelley M. , by Kelley M.
Sayler. Sayler.
3 For more on autonomous UVs, 3 For more on autonomous UVs, see CRSsee CRS In Focus IF11150, In Focus IF11150, Defense Primer: U.S. Policy on Lethal Autonomous
Weapon ~~Systems~~System s, by Kelley M. Sayler. , by Kelley M. Sayler.
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link to page 7 link to page link to page 7 link to page 87 link to page 7 link to page link to page 7 link to page 87 link to page 7 link to page link to page 7 link to page 87 Navy Large Unmanned Surface and Undersea Vehicles

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-are sometimes said to be particularly suitable for so-~~called~~cal ed “three D” missions, meaning missions “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,FY2019 included 99 UAVs, that its projected inventory of 3,912 aircraft at the end of FY2020 that its projected inventory of 3,912 aircraft at the end of FY2020
~~will~~ wil include 45 UVs, and that its projected inventory of 4,075 aircraft at the end of FY2021 include 45 UVs, and that its projected inventory of 4,075 aircraft at the end of FY2021 ~~will~~
wil include 57 UVs.5 Even so, some observers have include 57 UVs.5 Even so, some observers have ~~occasionally~~occasional y expressed dissatisfaction with what 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.
March 2021 Campaign Framework Document for UVs On March 16, 2021, the Department of the Navy released a “campaign framework” (i.e., overal strategy) document for developing and acquiring Navy and Marine UVs of various types and integrating them into U.S. naval operations.6 Navy USV and UUV Categories
As shown i As shown in Figure 1 andand 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 size-based categories that the Navy ~~calls~~cal s large, medium, large, medium, ~~small~~smal , and very , and very ~~small~~smal , and its UUV , and its UUV
acquisition programs similarly into four size-based categories that the Navy acquisition programs similarly into four size-based categories that the Navy ~~calls~~cal s extra-large, extra-large,
large, medium, and large, medium, and ~~small~~smal . The large UVs discussed in this CRS report . The large UVs discussed in this CRS report ~~fall~~ fal into the top two USV into the top two USV
categories icategories in Figure 1 and the top UUVand the top UUV category icategory in Figure 2.
The The ~~smaller~~smal er UVs shown in the other categories UVs shown in the other categories ofof Figure 1 ~~and~~and Figure 2, w~~hich~~which are not covered 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.~~
~~Large UVs and Navy Ship Count~~
~~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~~
~~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. Department of Defense (DOD) officials since~~
~~late 2019 have sent mixed signals on this question, but most recently have indicated that a new~~
~~Navy force-level goal that will replace the Navy’s current 355-ship force-level goal (see next~~
~~section) will include large unmanned vehicles (UVs).6~~

~~4 See,~~ assigned to manned ships and submarines. 4 See, for example, Ann Diab, “for example, Ann Diab, “ Drones Perform the Dull, Dirty, or Dangerous Work,” Drones Perform the Dull, Dirty, or Dangerous Work,” ~~Tech~~T ech.co, November 12, 2014; .co, November 12, 2014;
Bonnie Robinson, “Bonnie Robinson, “ Dull, Dirty, Dangerous Mission? SendDull, Dirty, Dangerous Mission? Send in the Robot Vehicle,” U.S.in the Robot Vehicle,” U.S. Army, AugustArmy, August 20, 2015; 20, 2015;
Bernard Marr, “Bernard Marr, “~~The~~ T he 4 Ds Of Robotization: Dull, Dirty, Dangerous And 4 Ds Of Robotization: Dull, Dirty, Dangerous And Dear ~~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 6 ~~In December 2019, it was reported that the Office of Management and Budget (OMB) had directed the Navy to~~
~~include in its FY2021 budget submission a legislative proposal to formally change the definition of which ships count~~
~~toward the quoted size of the Navy (known as the number of battle force ships) to include not only manned ships, but~~
~~also large UVs that operate essentially as unmanned ships. (See Justin Katz, “OMB: Pentagon Must Submit Proposal to~~
~~‘Redefine’ Battleforce Ships to Include Unmanned Vehicles,” Inside Defense, December 20, 2019; Joseph Trevithick,~~
~~“White House Asks Navy To Include New Unmanned Vessels In Its Ambitious 355 Ship Fleet Plan,” The Drive,~~
~~December 20, 2019; Paul McCleary, “Navy To Slash 24 Ships in 2021 Plan, Bolster Unmanned Effort,”~~ ~~Breaking~~
~~Defense, December 20, 2019, David B. Larter, “Pentagon Proposes Big Cuts to US Navy Destroyer Construction,~~
~~Congressional Research Service~~
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~~Navy Large Unmanned~~ Department of the Navy, Department of the Navy Unmanned Campaign Framework, March 16, 2021, 37 pp. See also Megan Eckstein, “ Navy, Marines Unveil How T hey Will Buy and Operate Future Pilotless Aircraft and Crewless Ships,” USNI News, March 16, 2021; Gina Harkins, “ Why You Should T rust Drone Ships and Unmanned T ech, According to the Navy,” Military.com , March 16, 2021; Stew Magnuson, “ Just In: Navy, Marine Corps Unmanned Framework Calls For ‘Capabilities’ Over Platforms,” National Defense, March 16, 2021; Seapower Staff, “ Navy, Marine Corps Release Unmanned Campaign Plan,” Seapower, March 16, 2021; Jordan Wolman, “ Looking to the Future of Combat and Competition, Navy Releases Much-Anticipated Campaign Plan on Unmanned Systems,” Inside Defense, March 16, 2021. Congressional Research Service 2 Navy Large Unmanned Surface and Undersea Vehicles

Figure 1. Navy USV Systems Vision

Source: Slide 3 of briefing by Captain Pete Slide 3 of briefing by Captain Pete ~~Small, Program~~ Smal , Program Manager, Unmanned Maritime SystemsManager, Unmanned Maritime Systems (PMS 406), (PMS 406),
entitled “Unmanned Maritimeentitled “Unmanned Maritime ~~Systems~~ Systems Update,” January 15, 2019, accessed May 22, 2019, at https://www.navsea.navy.mil/Portals/103/Documents/Exhibits/SNA2019/UnmannedMaritimeSys-Smal .pdf?ver=2019-01-15-165105-297. Figure 2. Navy UUV Systems Vision Source: Slide 2 of briefing by Captain Pete Smal , Program Manager, Unmanned Maritime Systems (PMS 406), entitled “Unmanned Maritime Systems Update,” January 15, 2019, accessed May 22, 2019, at Update,” January 15, 2019, accessed May 22, 2019, at
https://www.navsea.navy.mil/Portals/103/Documents/Exhibits/SNA2019/UnmannedMaritimeSys-https://www.navsea.navy.mil/Portals/103/Documents/Exhibits/SNA2019/UnmannedMaritimeSys-~~Small~~Smal .pdf?ver=.pdf?ver=
2019-01-15-165105-297.2019-01-15-165105-297.
Congressional Research Service 3 Navy Large Unmanned Surface and Undersea Vehicles Large UVs and Navy Ship Count 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 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. Department of Defense (DOD) officials since late 2019 have sent mixed signals on this question, but most recently have indicated that a new Navy force-level goal that wil replace the Navy’s current 355-ship force-level goal (see next section) wil include large unmanned vehicles (UVs).7 Part of More Distributed Navy Fleet Architecture
The Navy and DOD since 2019 have been working to develop a new Navy force-level goal to The Navy and DOD since 2019 have been working to develop a new Navy force-level goal to
replace the Navy’s current 355-ship force-level goal. This new Navy force-level goal is expected replace the Navy’s current 355-ship force-level goal. This new Navy force-level goal is expected
to introduce a change in fleet architecture, meaning basic the types of ships that make up the to introduce a change in fleet architecture, meaning basic the types of ships that make up the
Navy and how these ships are used in combination with one another to perform Navy missions. Navy and how these ships are used in combination with one another to perform Navy missions.
This new fleet architecture is expected to be more distributed than the fleet architecture reflected This new fleet architecture is expected to be more distributed than the fleet architecture reflected
in the 355-ship goal or previous Navy force-level goals. In particular, the new fleet architecture is in the 355-ship goal or previous Navy force-level goals. In particular, the new fleet architecture is
expected to feature expected to feature
 a  a ~~smaller~~smal er proportion of larger ships (such as large-deck aircraft carriers, cruisers, proportion of larger ships (such as large-deck aircraft carriers, cruisers,
destroyers, large amphibious ships, and large resupply ships); destroyers, large amphibious ships, and large resupply ships);

~~Retiring 13 Cruisers,” Defense News, December 24, 2019.)~~
~~In January 2020, Admiral Michael Gilday, the Chief of Naval Operations, stated that the top-level expression of the~~
~~ship force-level goal resulting from the Navy’s next FSA would not include UVs. (See, for example, Sam LaGrone,~~
~~“CNO Gilday Calls for Budget Increase to Reach 355 Ship Fleet; New Battle Force Count Won’t Include Unmanned~~
~~Ships,” USNI News, January 14, 2020; Rich Abott, “CNO: Ship Count Will Not Include Unmanned; Bigger Topline~~
~~Needed For Fleet Goal,” Defense Daily, January 15, 2020; John M. Doyle, “CNO Wants Larger Slice of Defense~~
~~Budget to Modernize, Meet China Threat,” Seapower, January 15, 2020; Rich Abott, “CNO: Ship Count Will Not~~
~~Include Unmanned; Bigger Topline Needed For Fleet Goal,” Defense Daily, January 15, 2020.)~~
~~In September 2020, Secretary of Defense Mark Esper signaled that the stated ship-force level goal will include large~~
~~UVs. (See, for example, Megan Eckstein, “Esper: Unmanned Vessels Will Allow the Navy to Reach 355-Ship Fleet,”~~
USNI News, September 18, 2020.)
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~~Navy Large Unmanned Surface and Undersea Vehicles~~

~~ a larger proportion of smaller ships (such as frigates, corvettes, smaller~~
~~amphibious ships, smaller resupply ships, and perhaps smaller aircraft carriers);~~
~~and~~
~~ a new third tier of surface vessels about as large as corvettes or large patrol craft~~
~~that will be either lightly manned, optionally manned, or unmanned, as well as~~
~~large unmanned underwater vehicles (UUVs).~~
~~Figure 2. Navy UUV Systems Vision~~

Source: 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~~
~~https://www.navsea.navy.mil/Portals/103/Documents/Exhibits/SNA2019/UnmannedMaritimeSys-Small.pdf?ver=~~
~~2019-01-15-165105-297.~~
~~Navy and DOD leaders believe that shifting to a more distributed fleet architecture is~~
~~ operationally necessary, to respond effectively to the improving maritime anti-~~
~~access/area-denial (A2/AD) capabilities of other countries, particularly China;7~~

~~7 See, for example, David B. Larter, “With China Gunning for Aircraft Carriers, US Navy Says It Must Change How It~~
~~Fights,” Defense News, December 6, 2019; Arthur H. Barber, “Redesign the Fleet,” U.S. Naval Institute Proceedings,~~
~~January 2019. 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 into a relatively limited number~~
~~of individually larger and more expensive surface ships—is increasingly vulnerable to attack by the improving A2/AD~~
~~capabilities (particularly anti-ship missiles and their supporting detection and targeting systems) of potential~~
~~adversaries, particularly China. Shifting to a more distributed architecture, these observers have argued, would~~
•
~~complicate an adversary’s targeting challenge by presenting the adversary with a larger number of Navy units~~
~~to detect, identify, and track;~~
•
~~reduce the loss in aggregate Navy capability that would result from the destruction of an individual Navy~~
~~platform;~~
•
~~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; and~~
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~~Navy Large Unmanned Surface and Undersea Vehicles~~
 a larger proportion of smal er ships (such as frigates, corvettes, smal er amphibious ships, smal er resupply ships, and perhaps smal er aircraft carriers); and  a new third tier of surface vessels about as large as corvettes or large patrol craft that wil be either lightly manned, optional y manned, or unmanned, as wel as large unmanned underwater vehicles (UUVs). Navy and DOD leaders believe that shifting to a more distributed fleet architecture is 7 In December 2019, it was reported that the Office of Management and Budget (OMB) had directed the Navy to include in its FY2021 budget submission a legislative proposal to formally change the definition of which ships count toward the quoted size of the Navy (known as the number of battle force ships) to include not only manned ships, but also large UVs that operate essentially as unmanned ships. (See Justin Katz, “ OMB: Pentagon Must Submit Proposal to ‘Redefine’ Battleforce Ships to Include Unmanned Vehicles,” Inside Defense, December 20, 2019; Joseph T revithick, “White House Asks Navy T o Include New Unmanned Vessels In Its Ambitious 355 Ship Fleet Plan,” The Drive, December 20, 2019; Paul McCleary, “Navy T o Slash 24 Ships in 2021 Plan, Bolster Unmanned Effort,” Breaking Defense, December 20, 2019, David B. Larter, “ Pentagon Proposes Big Cuts to US Navy Destroyer Construction, Retiring 13 Cruisers,” Defense News, December 24, 2019.) In January 2020, Admiral Michael Gilday, the Chief of Naval Operations, stated that the top-level expression of the ship force-level goal resulting from the Navy’s next FSA would not include UVs. (See, for example, Sam LaGrone, “CNO Gilday Calls for Budget Increase to Reach 355 Ship Fleet; New Battle Force Count Won’t Include Unmanned Ships,” USNI News, January 14, 2020; Rich Abott, “CNO: Ship Count Will Not Include Unmanned; Bigger T opline Needed For Fleet Goal,” Defense Daily, January 15, 2020; John M. Doyle, “CNO Wants Larger Slice of Defense Budget to Modernize, Meet China T hreat,” Seapower, January 15, 2020; Rich Abott, “CNO: Ship Count Will Not Include Unmanned; Bigger T opline Needed For Fleet Goal,” Defense Daily, January 15, 2020.) In September 2020, Secretary of Defense Mark Esper signaled that the stated ship-force level goal will include large UVs. (See, for example, Megan Eckstein, “ Esper: Unmanned Vessels Will Allow the Navy to Reach 355 -Ship Fleet ,” USNI News, September 18, 2020.) Congressional Research Service 4 Navy Large Unmanned Surface and Undersea Vehicles  operationally necessary, to respond effectively to the improving maritime anti- access/area-denial (A2/AD) capabilities of other countries, particularly China;8
  technically feasible as a result of advances in technologies for UVs and for 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
  affordable—no more expensive, and possibly less expensive, than the current —no more expensive, and possibly less expensive, than the current
fleet architecture, so as to fit within expected future Navy budgets. fleet architecture, so as to fit within expected future Navy budgets.
Shifting to a more distributed force architecture, Navy and Marine Corps officials have Shifting to a more distributed force architecture, Navy and Marine Corps officials have
suggested, suggested, ~~will~~ wil support the implementation of the Navy and Marine Corps’ new overarching support the implementation of the Navy and Marine Corps’ new overarching
operational concept, operational concept, ~~called~~cal ed Distributed Maritime Operations (DMO), and a supporting Marine Distributed Maritime Operations (DMO), and a supporting Marine
Corps operational concept Corps operational concept ~~called~~cal ed Expeditionary Advanced Base Operations (EABO). While Navy Expeditionary Advanced Base Operations (EABO). While Navy
officials have provided few details in public about DMO,officials have provided few details in public about DMO,89 the Navy does state in its FY2021 the Navy does state in its FY2021
budget submission thatbudget submission that
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, increased capability and necessary capacity at lower procurement and sustainment costs,
reducedreduced ~~risk to sailors and increased readiness by offloading missions~~ risk to sailors and increased readiness by offloading missions from manned from manned
combatants.combatants.9
~~On December 9, 2020, the outgoing Trump Administration released a document that can be~~
~~viewed as its own vision for future Navy force structure and/or a draft version of the FY2022 30-~~
~~year Navy shipbuilding plan. The document presents an envisioned Navy force-level goal for~~
~~achieving by 2045 a Navy with a more distributed fleet architecture, including 382 to 446 manned~~
~~ships, 119 to 166 LUSVs and MUSVs, and 24 to 76 XLUUVs. In establishing its force-level~~
~~goals and shipbuilding plans for the Navy, the Biden Administration can choose to adopt, revise,~~
~~or set aside this document.10~~
~~Accelerated Acquisition Strategies and Enabling Technologies~~
~~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~~

•
~~increase the modularity and reconfigurability of the fleet for adapting to changing mission needs.~~
~~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.~~
~~8 Then~~10 8 See, for example, David B. Larter, “With China Gunning for Aircraft Carriers, US Navy Says It Must Ch ange How It Fights,” Defense News, December 6, 2019; Arthur H. Barber, “Redesign the Fleet,” U.S. Naval Institute Proceedings, January 2019. 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 into a relatively limited number of individually larger and more expensive surface ships—is increasingly vulnerable to attack by the improving A2/AD capabilities (particularly anti-ship missiles and their supporting detection and targeting systems) of potential adversaries, particularly China. Shifting to a more distributed architecture, these observers have argued, would • complicate an adversary’s targeting challenge by presenting the adversary with a larger number of Navy units to detect, identify, and track; • reduce the loss in aggregate Navy capability that would result from the destruction of an individual Navy platform; • 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; and • increase the modularity and reconfigurability of the fleet for adapting to changing mission needs. For more on China’s maritime A2/AD capabilities, see CRS Report RL33153, China Naval Modernization: Im plications for U.S. Navy Capabilities—Background and Issues for Congress, by Ronald O'Rourke. 9 T hen-Chief of Naval Operations Admiral John Richardson, in explaining DMO, stated in December 2018 that “Our -Chief of Naval Operations Admiral John Richardson, in explaining DMO, stated in December 2018 that “Our
fundamental force element right now in many instances is the [individual]fundamental force element right now in many instances is the [individual] carrier strike group. We’re going to scale up carrier strike group. We’re going to scale up
so our fundamental force element for fighting is at the fleet[so our fundamental force element for fighting is at the fleet[ -wide] level, and the [individual] strike groups plug-wide] level, and the [individual] strike groups plug into into
those [larger] numberedthose [larger] numbered fleets. And they willfleets. And they will be, the strike groups and the fleet together, will be operating in a be, the strike groups and the fleet together, will be operating in a
distributeddistributed maritime operations way.” (Chief of Naval Operations Admiral John Richardson, as quotedmaritime operations way.” (Chief of Naval Operations Admiral John Richardson, as quoted in Megan in Megan
Eckstein, “Eckstein, “ Navy Planning for Gray-Zone Conflict; Finalizing Distributed Maritime Operations for High-End Fight,” Navy Planning for Gray-Zone Conflict; Finalizing Distributed Maritime Operations for High-End Fight,”
USNI News,, December 19, 2018.) December 19, 2018.)
910 Department of Defense Fiscal Year (FY) 2021 Budget Estimates, Navy Justification Book Volume Department of Defense Fiscal Year (FY) 2021 Budget Estimates, Navy Justification Book Volume 2 of 5, Research, 2 of 5, Research,
Development, Development, ~~Test~~T est & Evaluation, February 2020, PDF page 90 of 1,538. & Evaluation, February 2020, PDF page 90 of 1,538. ~~The~~T he statement also appears on PDF page 324 statement also appears on PDF page 324
of 1,538. For more on the more distributed force architecture, DMO, and EABO, seeof 1,538. For more on the more distributed force architecture, DMO, and EABO, see ~~CRS~~ CRS Report RL32665, Report RL32665, Navy
Force Structure and Shipbuilding Plans: Background and Issues for Congress, by Ronald, by Ronald O'Rourke. SeeO'Rourke. See also Kevin also Kevin
Eyer and Steve McJessy, “Eyer and Steve McJessy, “ Operationalizing Distributed Maritime Operations,” Center for International Maritime Operationalizing Distributed Maritime Operations,” Center for International Maritime
Security (CIMSEC),Security (CIMSEC), March 5, 2019; Christopher H. Popa et al., March 5, 2019; Christopher H. Popa et al., Distributed ~~Maritime~~Maritim e Operations and ~~Unmanned~~
~~Systems Tactical Employment~~Unm anned System s Tactical Em ploym ent, Naval Postgraduate School, June 2018, 171 pp. (Systems Engineering Capstone Report); , Naval Postgraduate School, June 2018, 171 pp. (Systems Engineering Capstone Report);
Lyla Englehorn, Lyla Englehorn, Distributed ~~Maritime~~Maritim e Operations (DMO) Warfare Innovation Continuum (WIC) Workshop Septem ber Congressional Research Service 5 link to page 11 link to page 11 link to page 11 Navy Large Unmanned Surface and Undersea Vehicles On December 9, 2020, the outgoing Trump Administration released a document that can be viewed as its own vision for future Navy force structure and/or a draft version of the FY2022 30-year Navy shipbuilding plan. The document presents an envisioned Navy force-level goal for achieving by 2045 a Navy with a more distributed fleet architecture, including 382 to 446 manned ships, 119 to 166 LUSVs and MUSVs, and 24 to 76 XLUUVs. In establishing its force-level goals and shipbuilding plans for the Navy, the Biden Administration can choose to adopt, revise, or set aside this document.11 Accelerated Acquisition Strategies and Enabling Technologies 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 ~~(WIC) Workshop September~~
~~2017 After Action Report, Naval Postgraduate School, December 2017, 99 pp.~~
~~10 For more on the December 9, 2020, document, see CRS Report RL32665,~~ ~~Navy Force Structure and Shipbuilding~~
~~Plans: Background and Issues for Congress, by Ronald O'Rourke.~~
~~Congressional Research Service~~
5

~~link to page 10 link to page 10~~

~~Navy Large Unmanned Surface and Undersea Vehicles~~

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 UVs for meeting future military ~~challenges~~chal enges from countries such as China. from countries such as China.1112
The LUSV and MUSV The LUSV and MUSV programs are building on USV development work done by the Strategic programs are building on USV development work done by the Strategic
~~Capabilities~~ Capabilities Office (SCO) within the Office of the Secretary of Defense (OSD). SCO’s effort to Office (SCO) within the Office of the Secretary of Defense (OSD). SCO’s effort to
develop USVs is develop USVs is ~~called~~cal ed Ghost Fleet, and its LUSV development effort within Ghost Fleet is Ghost Fleet, and its LUSV development effort within Ghost Fleet is
~~called~~ cal ed Overlord. Overlord.
As shown i As shown in Figure 3, 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 UUVUSV and UUV programs.programs.1213 Given limitations on underwater communications (most radio- 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 operations (such as artificial ~~intelligence) will~~ intel igence) wil be particularly important for the XLUUVbe particularly important for the XLUUV program program
(and other UUV(and other UUV programs).programs).1314 In May 2019, the Navy established a surface development squadron to help develop operational concepts for LUSVs and MUSVs. The squadron wil initial y consist of a Zumwalt (DDG-1000) class destroyer and one Sea Hunter prototype medium displacement USV (Figure 4). A second Sea Hunter prototype wil reportedly be added around the end of FY2020, and LUSVs and MUSVs wil then be added as they become available.15 2017 After Action Report, Naval Postgraduate School, December 2017, 99 pp. 11 For more on the December 9, 2020, document, see CRS Report RL32665, Navy Force Structure and Shipbuilding Plans: Background and Issues for Congress, by Ronald O'Rourke. 12
~~Figure 3. Enabling Technologies for USVs and UUVs~~

Source: 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~~
~~https://www.navsea.navy.mil/Portals/103/Documents/Exhibits/SNA2019/UnmannedMaritimeSys-Small.pdf?ver=~~
~~2019-01-15-165105-297.~~

11 A number of other DOD acquisition programs are also employing rapid or accelerated acquisition strategies of one A number of other DOD acquisition programs are also employing rapid or accelerated acquisition strategies of one
kind or another, in some cases usingkind or another, in some cases using special acquisition authorities that Congress has granted to DOD. For additional special acquisition authorities that Congress has granted to DOD. For additional
discussion,discussion, see CRSsee CRS Report R45068, Report R45068, Acquisition Reform in the FY2016-FY2018 National Defense Authorization Acts
(NDAAs), by Moshe Schwartz, by Moshe Schwartz and Heidiand Heidi M. Peters. M. Peters.
1213 For additional discussion For additional discussion of some of the enabling technologies shown of some of the enabling technologies shown inin Figure 3, see Pete Small, “Empowering the see Pete Small, “Empowering the
Unmanned Maritime Revolution,” Undersea Warfare, Spring 2019: 12Unmanned Maritime Revolution,” Undersea Warfare, Spring 2019: 12 -13. -13.
1314 For more on the use For more on the use of artificial intelligence in defense programs, see CRSof artificial intelligence in defense programs, see CRS Report R45178, Report R45178, Artificial Intelligence
and National Security, by Kelley M. Sayler. , by Kelley M. Sayler.
~~Congressional Research Service~~
6

~~link to page 11 link to page 12 link to page 12 link to page 13 link to page 13~~

~~Navy Large Unmanned Surface and Undersea Vehicles~~

~~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)~~
~~class destroyer and one Sea Hunter prototype medium displacement USV (Figure 4). A second~~
~~Sea Hunter prototype will reportedly be added around the end of FY2020, and LUSVs and~~
~~MUSVs will then be added as they become available.14~~15 See, for example, Megan Eckstein, “Navy Stands Up Surface Development Squadron for DDG-1000, Unmanned Experimentation,” USNI News, May 22, 2019; David B. Larter, “With Billions Planned in Funding, the US Navy Charts Its Unmanned Future,” Defense News, May 6, 2019. See also Michael Fabey, “USN Seeks Path for Unmanned Systems Operational Concepts,” Jane’s Navy International, May 16, 2019. Congressional Research Service 6 Navy Large Unmanned Surface and Undersea Vehicles Figure 3. Enabling Technologies for USVs and UUVs Source: Slide 4 of briefing by Captain Pete Smal , 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/Portals/103/Documents/Exhibits/SNA2019/UnmannedMaritimeSys-Smal .pdf?ver=2019-01-15-165105-297.
Figure 4. Sea Hunter Prototype Medium Displacement USV

Source: Photograph credited to U.S. Navy accompanying John Grady, “Panel: Unmanned Surface VesselsPhotograph credited to U.S. Navy accompanying John Grady, “Panel: Unmanned Surface Vessels ~~Wil~~ Wil be be
Significant Part of Future U.S. Fleet,”Significant Part of Future U.S. Fleet,” USNI News, April, April 15, 2019. Congressional Research Service 7 link to page 12 link to page 12 link to page 13 link to page 13 Navy Large Unmanned Surface and Undersea Vehicles ~~15, 2019.~~
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
5 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. Figure 6 andand Figure 7 show ships that have been used show ships that have been used
as LUSV prototypes. In unclassified presentations on the program, the Navy has used images of as LUSV prototypes. In unclassified presentations on the program, the Navy has used images of
offshore support ships used by the oil and gas industry to offshore support ships used by the oil and gas industry to ~~illustrate~~il ustrate the kinds of ships that might the kinds of ships that might
be used as the basis for LUSVs.be used as the basis for LUSVs.15

~~14 See, for example, Megan Eckstein, “Navy Stands Up Surface Development Squadron for DDG-1000, Unmanned~~
~~Experimentation,” USNI News, May 22, 2019; David B. Larter, “With Billions Planned in Funding, the US Navy~~
~~Charts Its Unmanned Future,” Defense News, May 6, 2019. See also Michael Fabey, “USN Seeks Path for Unmanned~~
~~Systems Operational Concepts,” Jane’s Navy International, May 16, 2019.~~
~~15 Sam~~ 16 Figure 5. Prototype and Notional LUSVs and MUSVs Source: Detail from Navy briefing slide entitled Unmanned Maritime Systems, slide 5 in a Navy briefing entitled “Designing & Building the Surface Fleet: Unmanned and Smal Combatants,” by Rear Admiral Casey Moton at a June 20, 2019, conference of the American Society of Naval Engineers (ASNE). 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— 16 Sam LaGrone, “Navy Wants 10-Ship Unmanned ‘Ghost Fleet’ to Supplement Manned Force,” LaGrone, “Navy Wants 10-Ship Unmanned ‘Ghost Fleet’ to Supplement Manned Force,” USNI News,, March March
13, 2019. 13, 2019.
Congressional Research Service Congressional Research Service
78

Navy Large Unmanned Surface and Undersea Vehicles particularly anti-surface warfare (ASuW) and strike payloads, meaning principal y anti-ship and land-attack missiles.17 Figure 6. LUSV Prototype Source: Cropped version of photograph accompanying Mal ory 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. Figure 7. LUSV prototype Source: Cropped version of photograph accompanying Mal ory 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. 17 T he 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 ~~Surface and Undersea Vehicles~~

~~Figure 5. Prototype and Notional LUSVs and MUSVs~~

Source: 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~~
~~June 20, 2019, conference of the American Society of Naval Engineers (ASNE).~~
~~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~~
~~land-attack missiles.16~~
~~The Navy wants LUSVs to be capable of operating with human operators in the loop,17 or semi-~~
~~autonomously (with human operators on the loop),18 or fully autonomously, and to be capable of~~
~~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~~
~~ships, because they might sometimes have a few onboard crew members, particularly in the~~

~~16 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 (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.
~~17 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.)~~
~~18 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~~
~~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.)~~
~~Congressional Research Service~~
8

~~Navy Large Unmanned Surface and Undersea Vehicles~~

Congressional Research Service 9 Navy Large Unmanned Surface and Undersea Vehicles The Navy wants LUSVs to be capable of operating with human operators in the loop,18 or semi-autonomously (with human operators on the loop),19 or fully autonomously, and to be capable of operating either independently or in conjunction with manned surface combatants. Although referred to as UVs, LUSVs might be more accurately described as optional y 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.nearer term as the Navy works out LUSV enabling technologies and operational concepts.19
20 LUSVs are to feature both built-in capabilitiesLUSVs are to feature both built-in capabilities and an abilityand an ability to accept modular payloads, and are to accept modular payloads, and are
to use existing Navy sensors and weapon launchers. FY2020 Legislative Activity ~~to use existing Navy sensors and weapon launchers.~~
~~Figure 6. 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.~~
~~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.~~
~~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

~~19 See, for example, David B. Larter, “US Navy Looks to Ease into Using Unmanned Robot Ships with a Manned~~
~~Crew,” Defense News, January 29, 2019.~~
~~Congressional Research Service~~
9

~~Navy Large Unmanned Surface and Undersea Vehicles~~

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 stated National Defense Authorization Act (S. 1790), the Senate Armed Services Committee stated
The The committee is concernedcommittee is concerned ~~that the budget request’s concurrent approach to~~ that the budget request’s concurrent approach to LUSV 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
LUSVLUSV concept of employment, requirements, and reliability for envisioned missions pose concept of employment, requirements, and reliability for envisioned missions pose
excessiveexcessive ~~acquisition risk~~ acquisition risk for additionalfor additional LUSV procurementLUSV procurement in in fiscal yearfiscal year 2020. The 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, Additionally, ~~the committee notes that the Navy’s “Report to Congress on the~~ the committee notes that the Navy’s “Report to Congress on the Annual 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~~ similar issues: “Unmanned and optionally-manned systems are not accounted for in the issues: “Unmanned and optionally-manned systems are not accounted for in the
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.”
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~~ 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 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.strategy.2021
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~~
~~concerned that the acquisition strategies for the Large USV, Medium~~ 18 T he 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.) 19 T he 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 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.) 20 See, for example, David B. Larter, “US Navy Looks to Ease into Using Unmanned Robot Ships with a Manned Crew,” Defense News, January 29, 2019. 21 S.Rept. 116-48, p. 80. Congressional Research Service 10 Navy Large Unmanned Surface and Undersea Vehicles 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, 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, Therefore, ~~the committee directs the Secretary of the Navy to submit a report to~~ the committee directs the Secretary of the Navy to submit a report to the the
congressional defensecongressional defense committees, not later than November 1, 2019, that provides committees, not later than November 1, 2019, that provides
acquisitionacquisition ~~roadmaps for the~~ roadmaps for the Large USV, MediumLarge USV, Medium USV, Orca UUV, andUSV, Orca UUV, and Snakehead Snakehead
UUV.UUV.21

~~20 S.Rept. 116-48, p. 80.~~
~~21 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~~ 22 In its report (S.Rept. 116-103 of September 12, 2019) on the FY2020 DOD Appropriations Act (S. 2474), the Senate Appropriations Committee stated that the Committee is concerned that for several unmanned programs the Navy is pursuing acquisition strategies that would limit future competitive opportunities by awarding system-level prototypes early in the acquisition process and failing to articulate capability, requirements or technology roadmaps to encourage industrial innovation. The Assistant 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 such acquisition roadmaps for each unmanned acquisition program that include no less than mission requirements, program requirements for each increment, key technologies, acquisition strategies, test strategies, sub-system and system-level prototyping plans, and cost estimates.23 S.Rept. 116-103 also stated The Committee fully supports additional investments in unmanned and autonomous technologies, systems and sub-systems, including surface and sub-surface vessels. 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 194)24 22 S.Rept. 116-48, p. 106. T he report stated further on pages 106-107 that Each roadmap shall: (1) Identify the applicable requirements document (e.g., T op Level Requirements); (2) Describe the threshold and objective values for each characteristic, key for each characteristic, key
performance parameter (KPP), or other measure in the applicable requirements document; (3) performance parameter (KPP), or other measure in the applicable requirements document; (3)
Identify increments of vessels in each program; (4) For each suchIdentify increments of vessels in each program; (4) For each such increment, identify specific increment, identify specific
entrance and exit criteria that build toward the specified requirements (e.g., characteristic, KPP, or entrance and exit criteria that build toward the specified requirements (e.g., characteristic, KPP, or
other measure), includingother measure), including demonstrated hardware and software functionality; (5) Identify the demonstrated hardware and software functionality; (5) Identify the
quantity of vesselsquantity of vessels needed in each increment to perform the required testing or meet needed in each increment to perform the required testing or meet ~~operational~~operation al
needs;needs; (6) Describe the concept of operations for each increment; (7) Identify the key pieces of (6) Describe the concept of operations for each increment; (7) Identify the key pieces of
hardwarehardware and software neededand software needed for each increment, including communications security material, for each increment, including communications security material,
off-board line-of-sight and satellite communications, and off-board line-of-sight and satellite communications, and ~~military~~milit ary datalinks; (8) Describe the extent datalinks; (8) Describe the extent
to which each increment of vessels willto which each increment of vessels will ~~be equipped~~ be equipped with weapons, enumerate such weapons, and with weapons, enumerate such weapons, and
describedescribe the associated target detectthe associated target detect -to-engage sequence of events for each such-to-engage sequence of events for each such weapon; (9) 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,planned cost, schedule, and performance; and (10) Provide the acquisition plan for each increment, including the planned cost, schedule, and performance. 23 S.Rept. 116-103, p. 191. 24 S.Rept. 116-103, p. 194. Congressional Research Service 11 Navy Large Unmanned Surface and Undersea Vehicles The explanatory statement for the final version of the FY2020 DOD Appropriations Act (Division ~~and performance; and (10) Provide the acquisition plan for each increment,~~
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~~In its report (S.Rept. 116-103 of September 12, 2019) on the FY2020 DOD Appropriations Act~~
~~(S. 2474), the Senate Appropriations Committee stated that~~
~~the Committee is concerned that for several unmanned programs the Navy is pursuing~~
~~acquisition strategies that would limit future competitive opportunities by awarding~~
~~system-level prototypes early in the acquisition process and failing to articulate capability,~~
~~requirements or technology roadmaps to encourage industrial innovation. The Assistant~~
~~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~~
~~such acquisition roadmaps for each unmanned acquisition program that include no less~~
~~than mission requirements, program requirements for each increment, key technologies,~~
~~acquisition strategies, test strategies, sub-system and system-level prototyping plans, and~~
~~cost estimates.22~~
~~S.Rept. 116-103 also stated~~
~~The Committee fully supports additional investments in unmanned and autonomous~~
~~technologies, systems and sub-systems, including surface and sub-surface vessels.~~
~~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~~
~~194)23~~
~~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) stated A 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
ofof ~~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 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 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 congressionalbriefs the congressional defense committees on the updated acquisitiondefense committees on the updated acquisition ~~strategy~~ strategy for for
unmanned surface vessels.unmanned surface vessels.2425
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 proposed modifying the acquisition strategy for the LUSV program so as to budget submission proposed modifying 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 proposed using research and development funding to acquire two additional strategy, the Navy proposed using research and development funding to acquire two additional
prototypes in FY2021 and one more additional prototype in FY2022 before shifting in FY2023 to 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 procurement 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 states rates in FY2023-FY2025 of 2-2-3. The Navy’s FY2021 budget submission states

~~including the planned cost, schedule, and performance.~~
~~22 S.Rept. 116-103, p. 191.~~
~~23 S.Rept. 116-103, p. 194.~~
~~24 Explanatory statement for Division A of H.R. 1158, PDF page 274 of 414.~~
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Major changes [in the LUSV program] from [the] FY Major changes [in the LUSV program] from [the] FY 2020 President’s Budget request to 2020 President’s Budget request to
[the] FY 2021 President’s Budget request [include the following]: [the] FY 2021 President’s Budget request [include the following]:
(1) The (1) The ~~program will award Conceptual Design (CD) contracts to~~ program will award Conceptual Design (CD) contracts to multiple vendorsmultiple vendors in in
FY20.FY20. The CD effort willThe CD effort will support refinement of a LUSV Performance Specification that support refinement of a LUSV Performance Specification that
does not include the Vertical Launch System (VLS).does not include the Vertical Launch System (VLS). The final Performance Specification The final Performance Specification
willwill define a LUSVdefine a LUSV with reservations in the design to support integration of a variety of 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 willsecond quarter of] FY 2020 will be delayed until early Q4 [the fourth quarter of] FY 2020 be delayed until early Q4 [the fourth quarter of] FY 2020
in orderin order ~~to support amendment of the CD Request for Proposals~~ to support amendment of the CD Request for Proposals (RFP), Performance (RFP), Performance
Specification, and associated artifacts. Specification, and associated artifacts.
(2) The (2) The ~~delay~~ delay in awardin award of theof the LUSV CD effortLUSV CD effort will delaywill delay follow-onfollow-on ~~activities~~ activities (RFP (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 willDesign and Construction (DD&C) contract. DD&C award will be delayed one year, from be delayed one year, from
FYFY ~~2021~~ 2021 to FY 2022.to FY 2022. The DD&C award willThe DD&C award will deliver a non-VLS LUSVdeliver a non-VLS LUSV prototype based 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’s Budget request plan of awarding the LUSV DD&C (3) In lieu of the FY 2020 President’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.
(4) The Navy plans to transition LUSV to a program of record in FY (4) The Navy plans to transition LUSV to a program of record in FY 2023 and align [the 2023 and align [the
program’s] procurementprogram’s] procurement ~~funding~~ funding to the Shipbuildingto the Shipbuilding and Conversion,and Conversion, Navy (SCN) Navy (SCN)
account.account.2526 25 Explanatory statement for Division A of H.R. 1158, PDF page 274 of 414. 26 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. Congressional Research Service 12 Navy Large Unmanned Surface and Undersea Vehicles
A January 13, 2020, press report stated that the Navy planned to submit a report on the Navy’s A January 13, 2020, press report stated that the Navy planned to submit a report on the Navy’s
concepts of operations for LUSVs and MUSVs in Aprilconcepts of operations for LUSVs and MUSVs in April 2020.2020.2627
September 4, 2020 Contract Award
On September 4, 2020, DOD announced the following six contract awards for industry studies on On September 4, 2020, DOD announced the following six contract awards for industry studies on
the LUSV: the LUSV:
Huntington Ingalls Inc., Pascagoula, Mississippi (N00024-20-C-6319); Huntington Ingalls Inc., Pascagoula, Mississippi (N00024-20-C-6319); Lockheed Martin Lockheed Martin
Corp., Baltimore, Maryland (N00024-20-C-6320); Bollinger ShipyardsCorp., Baltimore, Maryland (N00024-20-C-6320); Bollinger Shipyards ~~Lockport~~ Lockport LLC, LLC,
Lockport, Louisiana (N00024-20-C-6316);Lockport, Louisiana (N00024-20-C-6316); Marinette Marine Corp., Marinette, Wisconsin Marinette Marine Corp., Marinette, Wisconsin
(N00024-20-C-6317); Gibbs & Cox Inc., Arlington,(N00024-20-C-6317); Gibbs & Cox Inc., Arlington, Virginia (N0002420C6318); and Virginia (N0002420C6318); and
Austal USA LLC, Mobile, Alabama (N00024-20-C-6315),Austal USA LLC, Mobile, Alabama (N00024-20-C-6315), are each being awarded a firm-are each being awarded a firm-
fixed price contract for studies of a Large Unmanned Surface Vessel with a combined value fixed price contract for studies of a Large Unmanned Surface Vessel with a combined value
across all awards of $41,985,112. across all awards of $41,985,112.
Each contract includes an option for engineering support, that if exercised, would bring the Each contract includes an option for engineering support, that if exercised, would bring the
cumulative value for all awards to $59,476,146. cumulative value for all awards to $59,476,146.
 
The contract awarded to Huntington The contract awarded to Huntington ~~Ingalls~~Ingal s Inc. is $7,000,000;  the contract awarded to Lockheed Martin Corp. is $6,999,978;  the contract awarded to Bol inger Shipyards Lockport LLC, ~~Inc. is $7,000,000;~~

~~the contract awarded to Lockheed Martin Corp. is $6,999,978;~~

~~25 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.~~
~~26 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, 2020; David B. Larter, “Unclear on Unmanned: The US Navy’s Plans~~
~~for Robot Ships Are on the Rocks,” Defense News, January 10, 2021; David B. Larter, “Unclear on Unmanned, Part 2:~~
~~On Capitol Hill, the US Navy Has a Credibility Problem,” Defense News, January 11, 2021; David B. Larter, “Unclear~~
~~on Unmanned, Part 3: A New Year’s Resolution to Slow Down,” Defense News, January 11, 2021.~~
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~~Navy Large Unmanned Surface and Undersea Vehicles~~


~~the contract awarded to Bol inger Shipyards Lockport LLC,~~ is $6,996,832; is $6,996,832;
 
the contract awarded to Marinette Marine Corp. is $6,999,783; 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 Gibbs & Cox Inc. is $6,989,499; and
 
the contract awarded to Austal USA LLC is $6,999,020. the contract awarded to Austal USA LLC is $6,999,020.
Work Work ~~will be performed in various locations in the contiguous U.S. in accordance~~ will be performed in various locations in the contiguous U.S. in accordance with with
each contract and is expected to be complete by August 2021, and if option(s) are exercised, 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. work is expected to be complete by May 2022.
Fiscal 2020 research, Fiscal 2020 research, ~~development, test and evaluation (Navy) funds~~ development, test and evaluation (Navy) funds in the amount in the amount
$41,985,112$41,985,112 ~~will~~ will be obligated at time of award and will not expire at the end of the current be obligated at time of award and will not expire at the end of the current
fiscal year. fiscal year.
These These ~~contracts were competitively procured via Federal Business Opportunities~~ contracts were competitively procured via Federal Business Opportunities (now (now
beta.SAM.gov) with eight offers received. The Naval Sea Systems Command, beta.SAM.gov) with eight offers received. The Naval Sea Systems Command,
Washington, D.C., is the contracting activity.Washington, D.C., is the contracting activity.2728
A September 4, 2020, press report about the contract awards stated A September 4, 2020, press report about the contract awards stated
“These contracts were established in order to refine specifications and requirements for a “These contracts were established in order to refine specifications and requirements for a
Large Unmanned SurfaceLarge Unmanned Surface ~~Vessel and~~ Vessel and conduct reliabilityconduct reliability studies informedstudies informed by by industry industry
partners withpartners with ~~potential solutions prior to release~~ potential solutions prior to release of a Detail Designof a Detail Design ~~and~~ and Construction Construction
contract,” Navy spokesman Capt. Danny Hernandez told USNI News in a statement. 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~~
27 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, 2020; David B. Larter, “ Unclear on Unmanned: T he US Navy’s Plans for Robot Ships Are on the Rocks,” Defense News, January 10, 2021; David B. Larter, “ Unclear on Unmanned, Part 2: On Capitol Hill, the US Navy Has a Credibility Problem,” Defense News, January 11, 2021; David B. Larter, “ Unclear on Unmanned, Part 3: A New Year’s Resolution to Slow Down,” Defense News, January 11, 2021. 28 Department of Defense, “ Contracts For Sept. 4, 2020,” accessed September 8, 2020. T he 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 13 link to page 7 Navy Large Unmanned Surface and Undersea Vehicles “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.”… requirements are in place for a separate LUSV DD&C competition.”…
“The LUSV studies will support efforts that facilitate requirements refinement, “The LUSV studies will support efforts that facilitate requirements refinement,
developmentdevelopment ~~of an affordable and effective platform; provide opportunities to~~ of an affordable and effective platform; prov ide opportunities to continue continue
maturing the performancematuring the performance ~~specifications~~ specifications and conduct analysisand conduct analysis of alternativeof alternative design design
approaches; facilitate reliability improvements and plans for governmentapproaches; facilitate reliability improvements and plans for government -furnished -furnished
equipmentequipment ~~and mechanical~~ and mechanical and electrical systems;and electrical systems; ~~and~~ and support developmentsupport development of cost of cost
reduction and other affordability initiatives,” Hernandez said.reduction and other affordability initiatives,” Hernandez said.2829
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 that can accommodate various payloads. Initial payloads for MUSVs are to be ~~intelligence,~~
~~surveillance~~intel igence, surveil ance and reconnaissance (ISR) payloads and electronic warfare (EW) systems. The Navy 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.2930 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.~~

~~27 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.~~
~~28 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.~~
~~29 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.~~
~~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,~~
~~Congressional Research Service~~
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~~link to page 7 link to page 18~~

~~Navy Large Unmanned Surface and Undersea Vehicles~~

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)(ACTUV) effort and the Office of Naval Research (ONR) under its Medium Displacement USV effort and the Office of Naval Research (ONR) under its Medium Displacement USV
effort. As shown effort. As shown inin 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.3031 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[Harris] 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 prototype. With ~~all~~ al options exercised, the contract is valued at $281,435,446 if additional funding 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.”3132 The Navy reportedly stated that there were five competitors 29 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. 30 T his is a reference to Section 804 of the FY2016 National Defense Authorization Act ( S. 1356/P.L. 114-92 of November 25, 2015). T he rapid prototyping authority provided by that section is now codified at 10 U.S.C. 2302 note. For more on this authority, see “ Middle T ier Acquisition (Section 804),” MIT RE, undated, accessed May 24, 2019, at https://aida.mitre.org/middle-tier/; and “ Acquisition Process, Middle T ier Acquisition (Section 804),” AcqNotes, ~~The Navy reportedly stated that there were five competitors~~
~~for the contract, but did not identify the other four.32 Figure 8 shows a rendering of L3Harris’s~~
~~design concept.~~
~~Figure 8. 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.~~
~~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~~

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.
3031 See, See, for example, Megan Eckstein, “for example, Megan Eckstein, “ Sea Hunter Unmanned Ship Continues Autonomy Sea Hunter Unmanned Ship Continues Autonomy ~~Testing~~T esting as NAVSEA as NAVSEA Moves Moves
ForwardForward with Draft RFPwith Draft RFP ,” ,” USNI News,, April 29, 2019; Evan Milberg, “April 29, 2019; Evan Milberg, “ DARPA “DARPA “ Sea Hunter,” World’s Largest Sea Hunter,” World’s Largest
Autonomous Ship, Autonomous Ship, ~~Transferred~~T ransferred to U.S. Navy,” to U.S. Navy,” ~~Composites~~Com posites Manufacturing Magazine, February 12, 2018; Sydney J. , February 12, 2018; Sydney J.
FreedbergFreedberg Jr., “Jr., “ DSD [Deputy Secretary of Defense] Work Embraces DARPA’sDSD [Deputy Secretary of Defense] Work Embraces DARPA’s Robot Boat, SeaRobot Boat, Sea Hunter,” Hunter,” Breaking
Defense, April 7, 2016. , April 7, 2016.
3132 PEO Unmanned and Small PEO Unmanned and Small Combatants Public Affairs, “Combatants Public Affairs, “ Navy AwardsNavy Awards Contract for Medium Unmanned Surface Contract for Medium Unmanned Surface
VehicleVehicle Prototype,” Naval Sea Systems Command, July 13, 2020. Congressional Research Service 14 link to page 19 link to page 7 Navy Large Unmanned Surface and Undersea Vehicles for the contract, but did not identify the other four.33 Figure 8 shows a rendering of L3Harris’s design concept. Figure 8. 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. 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 ~~Prototype,” Naval Sea Systems Command, July 13, 2020.~~
~~32 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.~~
~~Congressional Research Service~~
14

~~link to page 8~~ ~~Navy Large Unmanned Surface and Undersea Vehicles~~

maneuvering autonomously and complying with international Collision Regulations, even maneuvering autonomously and complying with international Collision Regulations, even
in operational environments.… in operational environments.…
L3Harris will L3Harris will be the systems integrator and provide the mission autonomy and perception be the systems integrator and provide the mission autonomy and perception
technology as the prime contractor on the program. The program team includes Gibbs & 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 Cox and Incat Crowther who will provide the ship design and Swiftships will complete the
construction of the vehicle. construction of the vehicle.
L3Harris is a world leader in actively powered Unmanned Surface Vehicle (USV) systems, 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, with over 115 USVs delivered worldwide. L3Harris’ USVs are actively serving the Navy,
universities, research institutions and commercial businesses.universities, research institutions and commercial businesses.3334
XLUUV Program
The XLUUV The XLUUV program, also known as the Orca program, was established to address a Joint 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 the Navy defines XLUUVs as UUVs Navy defines XLUUVs as UUVs
with a diameter of more than 84 inches, meaning that XLUUVswith a diameter of more than 84 inches, meaning that XLUUVs are to be too large to be launched are to be too large to be launched
from a manned Navy submarine.from a manned Navy submarine.3435 Consequently, XLUUVs instead Consequently, XLUUVs instead ~~will~~ wil transported to a forward transported to a forward
operating port and then launched from pier. The 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.~~
~~The first five XLUUVs were funded in FY2019 through the Navy’s research and development~~
Department of the Navy’s March 16, 2021, 33 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. 34 L3Harris T echnologies, “L3Harris T echnologies Awarded Medium Unmanned Surface Vehicle Program from US Navy,” August 18, 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. Congressional Research Service 15 link to page 21 link to page 21 link to page 22 Navy Large Unmanned Surface and Undersea Vehicles unmanned campaign framework document states that the XLUUV wil be designed “to accommodate a variety of large payloads….”36 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.3537 (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.3638 Boeing has partnered with the Technical Solutions division Boeing has partnered with the Technical Solutions division
of Huntington of Huntington ~~Ingalls~~Ingal s Industries (HII) to build Orca XLUUVs. Industries (HII) to build Orca XLUUVs.3739 (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 The Navy wants procure additional XLUUVs at a rate of two per year starting in FY2023. The 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
XLUUVsXLUUVs in FY2021 or FY2022. The Navy is proposing to fund the procurement of XLUUVs in 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.40 Boeing’s Orca XLUUV design wil be informed by (but likely differ in certain respects from) the design of Boeing’s Echo Voyager UUV (Figure 9, Figure 10, and~~(OSD) recommended a future Navy with, among other things, up to 50 XLUUVs.38~~

~~33 L3Harris Technologies, “L3Harris Technologies Awarded Medium Unmanned Surface Vehicle Program from US~~
~~Navy,” August 18, 2020.~~
~~34 Navy submarines equipped with large-diameter vertical launch tubes can launch missiles or other payloads with~~
~~diameters of up to about 83 inches.~~
~~35 Department of Defense, Contracts for Feb. 13, 2019.~~
~~36 Department of Defense, Contracts for March 27, 2019.~~
~~37 See, for example, Hugh Lessig, “Shipbuilder Lends a Hand with Rise of Robot Submarines,” Defense News, May 26,~~
~~2019.~~
~~38 David B. Larter, “To Compete with China, An Internal Pentagon Study Looks to Pour Money into Robot~~
~~Submarines,” Defense News, June 1, 2020.~~
~~Congressional Research Service~~
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~~link to page 20 link to page 20 link to page 21~~

~~Navy Large Unmanned Surface and Undersea Vehicles~~

~~Boeing’s Orca XLUUV design will be informed by (but likely differ in certain respects from) the~~
~~design of Boeing’s Echo Voyager UUV (Figure 9, Figure 10, and Figure 11).39~~
~~Figure 9. Boeing Echo Voyager UUV~~

Source: Boeing photograph posted at https://www.boeing.com/defense/autonomous-systems/echo-voyager/
~~index.page#/gallery.~~
~~Figure 10. Boeing Echo Voyager UUV~~

Source: Boeing photograph posted at https://www.boeing.com/defense/autonomous-systems/echo-voyager/
~~index.page#/gallery.~~

~~39 See, for example, Hugh Lessig, “Shipbuilder Lends a Hand with Rise of Robot Submarines,” Defense News, May 26,~~
~~2019.~~
~~Congressional Research Service~~
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~~Navy Large Unmanned Surface and Undersea Vehicles~~

~~Figure 11. Boeing Echo Voyager UUV~~

Source: Navy briefing entitled “Unmanned Maritime Systems,” Howard Berkof, Deputy Program Manager,
~~Unmanned Maritime Systems, PMS 406, Distribution A: Approved for public release; distribution unlimited,~~
~~October 23, 2019, slide 5.~~ Figure 11).41
Echo Voyager is 51 feet long and has a rectangular cross section of 8.5 feet by 8.5 feet, a weight 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, and a range of up to 6,500 nautical miles. It can accommodate a modular 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 feet in length, increasing its length to as much as 85 feet. A 34-foot payload section up to 34 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 modular payload section 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 (14-foot) section provides about 900 cubic feet. Echo Voyager can also accommodate external
payloads.payloads.40
~~Potential Planned Force Levels under Navy’s New Battle Force 2045 Plan~~
~~The Navy’s current force-level goal, which was released on December 15, 2016, calls for~~
~~achieving and maintaining a fleet of 355-manned ships, and does not include large UVs in the~~
~~top-level expression of the planned total fleet size.41~~
~~As mentioned earlier, the Navy and DOD since 2019 have been working to develop a new force-~~
~~level goal to replace the Navy’s current 355-ship force-level goal. The conclusion of this work~~
~~and the release of its results to Congress have been delayed repeatedly since late 2019.~~
~~On October 6, 2020, Secretary of Defense Mark Esper provided some details on the Trump~~
~~Administration’s new Navy force-level goal, which it calls Battle Force 2045. This new force-~~
~~level goal, which appears generally consistent with the more distributed fleet architecture outlined~~
~~earlier in this report, calls for achieving a fleet of more than 500 manned and unmanned ships by~~
~~2045, including 355 manned ships prior to 2035.~~
~~In his remarks, Esper stated that Battle Force 2045 would include “140 to 240 unmanned and~~
~~optionally manned surface and sub-surface vessels of all types.”42 Esper’s remarks did not~~

~~40 Source: Boeing product sheet on Echo Voyager, accessed~~ 42 36 Department of the Navy, Department of the Navy Unmanned Campaign Framework, March 16, 2021, p. 16. 37 Department of Defense, Contracts for Feb. 13, 2019. 38 Department of Defense, Contracts for March 27, 2019. 39 See, for example, Hugh Lessig, “Shipbuilder Lends a Hand with Rise of Robot Submarines,” Defense News, May 26, 2019. 40 David B. Larter, “ T o Compete with China, An Internal Pentagon Study Looks to Pour Money into Robot Submarines,” Defense News, June 1, 2020. 41 See, for example, Hugh Lessig, “Shipbuilder Lends a Hand with Rise of Robot Submarines,” Defense News, May 26, 2019. 42 Source: Boeing product sheet on Echo Voyager, accessed May 31, 2019, at https://www.boeing.com/resources/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.
~~41 For more on the 355-ship plan, see CRS Report RL32665,~~ ~~Navy Force Structure and Shipbuilding Plans:~~
~~Background and Issues for Congress, by Ronald O'Rourke.~~
~~42 Department of Defense, “Secretary Of Defense Remarks at CSBA [Center for Strategic and Budgetary Assessments]~~
~~on the NDS [National Defense Strategy] and Future Defense Modernization Priorities,” transcript of remarks, October~~Congressional Research Service 16 Navy Large Unmanned Surface and Undersea Vehicles Figure 9. Boeing Echo Voyager UUV Source: Boeing photograph posted at https://www.boeing.com/defense/autonomous-systems/echo-voyager/index.page#/gal ery. Figure 10. Boeing Echo Voyager UUV Source: Boeing photograph posted at https://www.boeing.com/defense/autonomous-systems/echo-voyager/index.page#/gal ery.
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link to page 22 link to page 22 Navy Large Unmanned Surface and Undersea Vehicles Figure 11. Boeing Echo Voyager UUV Source: Navy briefing entitled “Unmanned Maritime Systems,” Howard Berkof, Deputy Program Manager, Unmanned Maritime Systems, PMS 406, Distribution A: Approved for public release; distribution unlimited, October 23, 2019, slide 5.~~Surface and Undersea Vehicles~~

~~provide a breakdown of this figure, but press reports during 2020 on the development of Battle~~
~~Force 2045 suggest that the figure of 140 might include 65 to 87 LUSVs and MUSVs and~~
~~upwards of 60 XLUUVs, and that the figure of 240 might include upwards of (or perhaps more~~
~~than) 100 MUSVs and 60 XLUUVs.43~~
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~~Mil ions of dol ars, rounded to nearest tenth , rounded to nearest tenth
FY21-
FY25
Program
FY21
FY22
FY23
FY24
FY25
total
LUSV research and development LUSV research and development funding 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 XLUUV research and development funding 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 XLUUV procurement funding 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.Navy FY2021 budget submission. LUSV is Project 3066 within PE (Program Element) 0603178N (line 27 LUSV is Project 3066 within PE (Program Element) 0603178N (line 27
in the Navy’s FY2021 researchin the Navy’s FY2021 research and development account). MUSV isand development account). MUSV is Project 3428 within PE 0603178N (line 27). Project 3428 within PE 0603178N (line 27).
LUSV and MUSV enabling technologiesLUSV and MUSV enabling technologies is Project 3067 within PE 0603178N (line 27). XLUUV is Project 3394 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.
Congressional Research Service 18 link to page 11 Navy Large Unmanned Surface and Undersea Vehicles 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.

~~6, 2020.~~
~~43 For additional discussion and citations to the press reports, see CRS Report RL32665,~~ ~~Navy Force Structure and~~
~~Shipbuilding Plans: Background and Issues for Congress, by Ronald O'Rourke.~~
~~Congressional Research Service~~
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~~link to page 11~~ ~~Navy Large Unmanned Surface and Undersea Vehicles~~

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  How ~~well~~ wel developed, and how developed, and how ~~well~~ wel tested, are the operational concepts tested, are the operational concepts
associated with the more distributed architecture? associated with the more distributed architecture?
Concept of Operations (CONOPS)
Another potential oversight issue for Congress concerns the Navy’s concept of operations Another potential oversight issue for Congress concerns the Navy’s concept of operations
(CONOPS) for these large UVs, meaning the Navy’s understanding at a detailed level of how it (CONOPS) for these large UVs, meaning the Navy’s understanding at a detailed level of how it
~~will~~ wil operate these UVs in conjunction with manned Navy ships in various operational scenarios, operate these UVs in conjunction with manned Navy ships in various operational scenarios,
and consequently how, exactly, these UVs and consequently how, exactly, these UVs ~~will~~ wil fit into the Navy’s fit into the Navy’s ~~overall~~ overal force structure and force structure and
operations. Potential oversight questions for Congress include the following: operations. Potential oversight questions for Congress include the following:
 How fully has the Navy developed its CONOPS for these large UVs? What  How fully has the Navy developed its CONOPS for these large UVs? What
activities is the Navy undertaking to develop its CONOPS for them? activities is the Navy undertaking to develop its CONOPS for them?
 What is the Navy’s CONOPS for using these large UVs in day-to-day,  What is the Navy’s CONOPS for using these large UVs in day-to-day,
noncombat operations? noncombat operations?
 How sensitive are the performance requirements that the Navy has established  How sensitive are the performance requirements that the Navy has established
for these large UVs to potential changes in their CONOPS that may occur as the for these large UVs to potential changes in their CONOPS that may occur as the
Navy continues to develop the CONOPS? How likely is it, if at Navy continues to develop the CONOPS? How likely is it, if at ~~all~~al , that the Navy , that the Navy
~~will~~ wil have to change the performance requirements for these large UVs as a have to change the performance requirements for these large UVs as a
consequence of more fully developing their CONOPS? consequence of more fully developing their CONOPS?
As mentioned earlier, As mentioned earlier, in May 2019, the Navy established a surface development squadron to help in May 2019, the Navy established a surface development squadron to help
develop operational concepts for LUSVs and MUSVs. The squadron develop operational concepts for LUSVs and MUSVs. The squadron ~~will initially~~ wil initial y consist of a consist of a
Zumwalt (DDG-1000) class destroyer and one Sea Hunter prototype medium displacement USV Zumwalt (DDG-1000) class destroyer and one Sea Hunter prototype medium displacement USV
(Figure 4). A second Sea Hunter prototype . A second Sea Hunter prototype ~~will~~ wil reportedly be added around the end of FY2020, reportedly be added around the end of FY2020,
and LUSVs and MUSVs and LUSVs and MUSVs ~~will~~ wil then be added as they become available.then be added as they become available.4443 A September 9, 2020, A September 9, 2020,
press report states: press report states:
Development squadrons Development squadrons ~~working with unmanned underwater and surface vehicles~~ working with unmanned underwater and surface vehicles are are
moving out quickly to develop concepts of operations and human-machine interfaces, even moving out quickly to develop concepts of operations and human-machine interfaces, even
~~as they’re still using prototypes ahead of the delivery of fleet USVs and UUVs, officials~~
~~said this week.~~
~~Capt. Hank Adams, the commodore of Surface Development Squadron One~~
~~(SURFDEVRON), is planning an upcoming weeks-long experiment with sailors in an~~
~~unmanned operations center (UOC) ashore commanding and controlling an Overlord USV~~
~~that the Navy hasn’t even taken ownership of from the Pentagon, in a bid to get a head start~~

~~44 See,~~ 43 See, for example, Megan Eckstein, “Navy Stands Up Surfacefor example, Megan Eckstein, “Navy Stands Up Surface Development SquadronDevelopment Squadron for DDG-1000, Unmanned for DDG-1000, Unmanned
Experimentation,” Experimentation,” USNI News, May 22, 2019; David B., May 22, 2019; David B. Larter, “With Billions Planned in Funding,Larter, “With Billions Planned in Funding, the USthe US Navy Navy
Charts Its Unmanned Future,” Charts Its Unmanned Future,” Defense News,, May 6, 2019. See also Michael Fabey, “USN SeeksMay 6, 2019. See also Michael Fabey, “USN Seeks Path for Unmanned Path for Unmanned
Systems Operational Concepts,” Systems Operational Concepts,” Jane’s Navy International, May 16, 2019. , May 16, 2019.
Congressional Research Service Congressional Research Service
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Navy Large Unmanned Surface and Undersea Vehicles as they’re still using prototypes ahead of the delivery of fleet USVs and UUVs, officials said this week. Capt. Hank Adams, the commodore of Surface Development Squadron One (SURFDEVRON), is planning an upcoming weeks -long experiment with sailors in an unmanned operations center (UOC) ashore commanding and controlling an Overlord USV that the Navy hasn’t even taken ownership of from the Pentagon, in a bid to get a head start ~~Surface and Undersea Vehicles~~

on figuring out what the command and control process looks like and what the supervisory on figuring out what the command and control process looks like and what the supervisory
control system must allow sailors to do. control system must allow sailors to do.
And Cmdr. Rob Patchin, commanding officer of Unmanned Undersea Vehicles Squadron And Cmdr. Rob Patchin, commanding officer of Unmanned Undersea Vehicles Squadron
One (UUVRON-1),One (UUVRON-1), is pushing the limits of his test vehicles to send the program office a is pushing the limits of his test vehicles to send the program office a
list of vehicle behaviors that his operators need their UUVs to have that the commercial list of vehicle behaviors that his operators need their UUVs to have that the commercial
prototypes today don’t have. prototypes today don’t have.
The two spoke The two spoke during a panel at the Associationduring a panel at the Association for Unmannedfor Unmanned Vehicle Systems Vehicle Systems
International (AUVSI) annual defense conference on Tuesday, andInternational (AUVSI) annual defense conference on Tuesday, and made clear that they made clear that they
want to have the fleet trained and ready to start using UUVs and USVs when industry is want to have the fleet trained and ready to start using UUVs and USVs when industry is
ready to deliver them.ready to deliver them.4544
An October 30, 2020, press report stated: An October 30, 2020, press report stated:
The Navy is set to complete and release a concept of operations for the medium and large The Navy is set to complete and release a concept of operations for the medium and large
unmanned surfaceunmanned surface vehicles invehicles in ~~"the~~ “the next few months,next few months,~~" a Navy spokesman told~~ ” a Navy spokesman told Inside Inside
Defense. Defense.
Alan Baribeau, a spokesman Alan Baribeau, a spokesman for Naval Sea Systemsfor Naval Sea Systems Command, said the Navy extended Command, said the Navy extended
the due date to allow for more flexibilitythe due date to allow for more flexibility during the COVID-19 pandemic and allow for during the COVID-19 pandemic and allow for
sufficient time for review and staffing…. sufficient time for review and staffing….
The CONOPS is currently The CONOPS is currently ~~undergoing~~ undergoing flag-level review after completing action officer-flag-level review after completing action officer-
level review as well as O6-level review, Baribeau said.level review as well as O6-level review, Baribeau said.4645
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?4746
 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~~
~~approaches for defense acquisition that are intended to respond to the new~~
~~international security environment?~~
~~Technical, Schedule, and Cost Risk~~
~~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~~

45 44 Megan Eckstein, “ Megan Eckstein, “ USV, UUV Squadrons T esting~~USV, UUV Squadrons Testing~~ Out Concepts Ahead of Delivery of Out Concepts Ahead of Delivery of ~~Their~~T heir Vehicles,” Vehicles,” USNI News, ,
September 9, 2020. September 9, 2020.
4645 Aidan Quigley, Aidan Quigley, “ “Navy Finishing Unmanned SurfaceNavy Finishing Unmanned Surface ~~Vehicles~~ Vehicles Concept of Operations ‘in Next Few Months,’” Concept of Operations ‘in Next Few Months,’” Inside
Defense, October 30, 2020. , October 30, 2020.
4746 For more on this shift, see CRS For more on this shift, see CRS Report R43838, Report R43838, Renewed Great Power Competition: Implications for Defense—
Issues for Congress, by Ronald, by Ronald O'Rourke. O'Rourke.
Congressional Research Service Congressional Research Service
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Navy Large Unmanned Surface and Undersea Vehicles  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 international security environment? Technical, Schedule, and Cost Risk Another potential oversight issue for Congress concerns the amount of technical, schedule, and cost risk in these programs, particularly given that these platforms potential y are to operate at sea ~~Surface and Undersea Vehicles~~

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
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 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~~ 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 the
systems, it must answer some basic questions. systems, it must answer some basic questions.
How will How will these systems deploy? How will they be supported overseas? Who will support 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
openopen ~~ocean for weeks at a time? Will the systems be able to communicate in denied~~
~~environments?~~
~~As the Navy goes all-in on its unmanned future, with billions of dollars of~~ ocean for weeks at a time? Will the systems be able to communicate in denied environments? As the Navy goes all-in on its unmanned future, with billions of dollars of investments investments
planed, how the service answers those questions will be crucial to the success planed, how the service answers those questions will be crucial to the success oro r failure of failure of
its unmanned pivot.its unmanned pivot.4847
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
surfacesurface ~~and~~ and undersea systems isundersea systems is ~~being aided by industry, international partners~~ being aided by industry, international partners and and
developmentaldevelopmental ~~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~~
squadrons, even as the program office seeks to ease concerns that the transition is happening too fast, the program executive officer for unmanned and smal 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~~
~~International Studies.49~~
~~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~~

48 47 David B. Larter, “ David B. Larter, “ US Navy Embraces Robot Ships,US Navy Embraces Robot Ships, But Some Unresolved IssuesBut Some Unresolved Issues Are HoldingAre Holding ~~Them~~ T hem Back,” Back,” Defense
News,, June 1, 2020. See also Bryan Clark, “June 1, 2020. See also Bryan Clark, “ Pentagon Needs Pentagon Needs ToT o Go Faster—And Slower—On Go Faster—And Slower—On Unmanned Systems,” Unmanned Systems,”
Forbes, June, June ~~11, 2020.~~
~~49 Megan Eckstein, “Program Office Maturing USVs, UUVs With Help From Industry, International Partners,”~~ ~~USNI~~
~~News, June 23, 2020.~~
~~Congressional Research Service~~
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~~Navy Large Unmanned Surface and Undersea Vehicles~~

~~surface combatants, a growing consensus is forming that the service needs to get~~ 11, 2020. Congressional Research Service 21 Navy Large Unmanned Surface and Undersea Vehicles event today co-hosted by the U.S. Naval Institute and the Center for Strategic and International Studies.48 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 its
requirements and systems right before making a big investment.… requirements and systems right before making a big investment.…
In an exclusive July 16 interview In an exclusive July 16 interview with Defense News, Chief of Naval Operationswith Defense News, Chief of Naval Operations Adm. Adm.
Michael Gilday said that while the [congressional] marks [on the program] were 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. 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 “The approach has to be deliberate,” Gilday said. “We have to make sure that the systems
thatthat ~~are on those unmanned systems with respect to the [hull, mechanical and electrical~~
~~system], that they are designed to requirement, and perform to requirement. And~~ are on those unmanned systems with respect to the [hull, mechanical and electrical system], that they are designed to requirement, and perform to requirement. And most most
importantly, are those requirements sound? importantly, are those requirements sound?
“I go back to [a question from years ago relating to the development of the Navy’s Littoral “I go back to [a question from years ago relating to the development of the Navy’s Littoral
Combat Ship (LCS)]:Combat Ship (LCS)]: Do I really need a littoral combat ship to go 40 knots? That’s going 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 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 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.” can find yourself drifting. That has to be deliberate.”
Gilday has called for the Navy to pursue a comprehensive “Unmanned Campaign Plan” 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 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 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. may not all be pulling in the same direction, he said.
“What “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~~ 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 in
other experiments? other experiments?
“At what point do I reach a decision point where I drop a program and double down on a “At what point do I reach a decision point where I drop a program and double down on a
program that I can accelerate?”program that I can accelerate?”5049
A September 8, 2020, press report states: A September 8, 2020, press report states:
Several Navy program officials and resource sponsors today outlined how they’ll spend Several Navy program officials and resource sponsors today outlined how they’ll spend
thethe ~~next couple years giving Congress enough confidence in unmanned surface~~ next couple years giving Congress enough confidence in unmanned surface and and
underwater vehicles to allow the service to move from prototyping into programs of record. underwater vehicles to allow the service to move from prototyping into programs of record.
Across the entire family of USVs and UUVs, the Navy has prototypes in the water today Across the entire family of USVs and UUVs, the Navy has prototypes in the water today
for experimentation and in tandem is making plans to design and buy the next better vehicle for experimentation and in tandem is making plans to design and buy the next better vehicle
or more advanced payloads, with the idea that the service will iterate its way to achieve or more advanced payloads, with the idea that the service will iterate its way to achieve
congressional confidence and authorization to move forward on buying these unmanned congressional confidence and authorization to move forward on buying these unmanned
systems in bulk. systems in bulk.
Rear Adm. Casey Moton, Rear Adm. Casey Moton, the program executive officer for unmanned andthe program executive officer for unmanned and small small
combatants, spoke today at the Association for Unmanned Vehicle Systems International combatants, spoke today at the Association for Unmanned Vehicle Systems International
48 Megan Eckstein, “ Program Office Maturing USVs, UUVs With Help From Industry, International Partners,” USNI News, June 23, 2020. 49 David B. Larter, “ In Developing Robot Warships, US Navy Wants to Avoid Another Littoral Combat Ship,” Defense News, August 17, 2020. See also Loren T hompson, “ U.S. Navy Mounts Campaign T o Convince Congress T hat Unmanned Vessels Are Critical T o Winning Future Wars,” Forbes, August 17, 2020. Congressional Research Service 22 Navy Large Unmanned Surface and Undersea Vehicles (AUVSI) annual defense conference and provided an update on the status of his portfolio (AUVSI) annual defense conference and provided an update on the status of his portfolio
of UUVs and USVs, some of which have run into trouble with lawmakers not convinced of UUVs and USVs, some of which have run into trouble with lawmakers not convinced
of their technical maturity and their tactical utility. of their technical maturity and their tactical utility.
Anticipating audience questions, he said in his speech, “what about Congress? What about Anticipating audience questions, he said in his speech, “what about Congress? What about
the marks and the report language and the questions? So I’m going to put some of that into the marks and the report language and the questions? So I’m going to put some of that into
context from my perspective. I believe the discussion with Congress has not been about if context from my perspective. I believe the discussion with Congress has not been about if
unmanned vessels will be part of the Navy. ‘If’ has not been the focus. I don’t even believe unmanned vessels will be part of the Navy. ‘If’ has not been the focus. I don’t even believe
right now that ‘if’ is a major question. The focus has been on ‘how,’ with a healthy dose right now that ‘if’ is a major question. The focus has been on ‘how,’ with a healthy dose

~~50 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.~~
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of of ‘what,’‘what,’ ~~in terms of requirements and mission type. And of course, ‘how many’ is a~~
~~question. How many, I will not focus on today. How many is dependent on Navy~~ in terms of requirements and mission type. And of course, ‘how many’ is a question. How many, I will not focus on today. How many is dependent on Navy and and
[Office of the Secretary of Defense] force structure work. But for PEO USC, how many is [Office of the Secretary of Defense] force structure work. But for PEO USC, how many is
ultimatelyultimately ~~important, but our focus now in this prototyping and experimentation and~~
~~development phase is on the how, and working with our requirements sponsors and the~~
~~fleet on the what.”~~
~~The most ambitious part of the Navy’s current plan calls for the start of a~~ important, but our focus now in this prototyping and experimentation and development phase is on the how, and working with our requirements sponsors and the fleet on the what.” The most ambitious part of the Navy’s current plan calls for the start of a Large USV Large USV
program of record in Fiscal Year 2023, despite the LUSV being the piece of program of record in Fiscal Year 2023, despite the LUSV being the piece of ~~the family of~~
~~USVs that Congress takes issue with the most. The Navy intends for these ships to~~ th e family of USVs that Congress takes issue with the most. The Navy intends for these ships to be be
armed with vertical launch system cells to fire off defensive and offensive missiles—with armed with vertical launch system cells to fire off defensive and offensive missiles—with
sailors onboard manned ships overseeing targeting and firing decisions, since there would sailors onboard manned ships overseeing targeting and firing decisions, since there would
be no personnel on the LUSV.be no personnel on the LUSV.5150
Annual Procurement Rates
Another oversight issue for Congress concerns the Navy’s planned annual procurement rates for Another oversight issue for Congress concerns the Navy’s planned annual procurement rates for
the LUSV and XLUUVthe LUSV and XLUUV programs during the period FY2021-FY2025. Potential oversight programs during the period FY2021-FY2025. Potential oversight
questions for Congress include, What factors did the Navy consider in arriving at them, and in 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? 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 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 large UV programs as part of a shift to a more distributed fleet architecture, particularly since
UVs like these can be built and maintainedUVs like these can be built and maintained by facilities other than the shipyards that currently by facilities other than the shipyards that currently
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 combatants (i.e., cruisers and destroyers) and ~~small~~ smal surface combatants (i.e., 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?
51  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 levelsemployment levels at various production and maintenance facilities? 50 Megan Eckstein, “ Navy Pushing to Maintain 2023 USV Program of Record T imeline,” USNI News, September 8, 2020. 51 For an opinion piece addressing t his issue, see Collin Fox, “ Distributed Manufacturing for Distributed Lethality,” Center for International Maritime Security (CIMSEC), February 26, 2021. Congressional Research Service 23 Navy Large Unmanned Surface and Undersea Vehicles ~~at various production and maintenance facilities?~~
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.

~~51 Megan Eckstein, “Navy Pushing to Maintain 2023 USV Program of Record Timeline,” USNI News, September 8,~~
~~2020.~~
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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 As ~~autonomous systems proliferate in the air and on~~ autonomous systems proliferate in the air and on the ocean, [opposing]the ocean, [opposing] military 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 Consider ~~when Chinese naval personnel in a small boat seized an unmanned~~ when Chinese naval personnel in a small boat seized an unmanned American American
underwater survey glider52 in the sea approximately 100 kilometers off the Philippines in underwater survey glider52 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
thethe ~~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. 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. 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 In coming ~~years, the Chinese~~ years, the Chinese military will find increasinglymilitary will find increasingly ~~plentiful opportunities~~ plentiful opportunities to 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….
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 intelligenceartificial intelligence ~~software, download navigational data or pre-programmed rules of~~
~~engagement, or probe for cyber vulnerabilities that could be exploited against similar~~
~~vehicles….~~
~~Nearly 100,000~~ software, download navigational data or pre-programmed rules of engagement, or probe for cyber vulnerabilities that could be exploited against similar vehicles…. Nearly 100,000 ships transit the strategically vital Singapore Strait annually, where more 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 waterseasily serve as convenient rationale for towing it into territorial waters for impoundment, or for boarding it straightaway…. 52 A glider is a type of UUV. T he 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, ~~for impoundment,~~
~~or for boarding it straightaway….~~
~~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~~
~~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~~
~~should interact with their autonomous counterparts. Without such guidance, the risk of~~
~~miscalculation increases.~~

~~52 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. December 16, 2016.
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~~An incident without any immediate human presence or losses could nonetheless~~ 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 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 should interact with their autonomous counterparts. Without such guidance, the risk of miscalculation increases. An incident without any immediate human presence or losses could nonetheless trigger trigger
unexpected escalation and spark the next conflict.53 unexpected escalation and spark the next conflict.53
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  What implications might these large UVs have for the required ~~skills~~skil s, training, , training,
and career paths of Navy personnel? and career paths of Navy personnel?
 Within the Navy, what  Within the Navy, what ~~will~~ wil be the relationship between personnel who crew 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?
Annual 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 FY2022
The Navy’s proposed FY2022 budget The Navy’s proposed FY2022 budget ~~will~~ wil be submitted to Congress later this year. be submitted to Congress later this year.
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, summarizes congressional action on the Navy’s FY2021 funding request for the LUSV,
MUSV, and XLUUVMUSV, and XLUUV programs and their enabling technologies. programs and their enabling technologies.

53 Evan Karlik, “US-China 53 Evan Karlik, “US-China ~~Tensions~~T ensions—Unmanned Military Craft Raise Risk—Unmanned Military Craft Raise Risk of War,” of War,” Nikkei Asian Review, June, June 28, 28,
2019. See also David B.2019. See also David B. Larter, “Larter, “~~The~~T he US Navy Says US Navy Says It’s Doing Its Best to Avoid a ‘It’s Doing Its Best to Avoid a ‘~~Terminator~~T erminator’ Scenario in Quest for ’ Scenario in Quest for
Autonomous Weapons,” Autonomous Weapons,” Defense News,, September 12, 2019; David Axe, “September 12, 2019; David Axe, “ Autonomous Navies CouldAutonomous Navies Could Make War More Make War More
Likely,” Likely,” National Interest, August, August 17, 2020. 17, 2020.
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Table 2. Congressional Action on FY2021 Large UV Funding Request
~~Millions of dollars~~Mil ions of dol ars, rounded to the nearest tenth , rounded to the nearest tenth

Authorization
Appropriation

Request HASC
SASC Conf.
HAC
SAC
Conf.
Navy research and development account
MUSVs and LUSVs (Line 27, Projects 3066, 3067, 3428) MUSVs and LUSVs (Line 27, Projects 3066, 3067, 3428)
464.0 464.0
270.4 270.4
0 0
259.2 259.2
259.2 259.2
91.2 91.2
93.7 93.7
MUSVs (Line 27A) MUSVs (Line 27A)
0 0
0 0
0 0
0 0
0 0
55.4 55.4
55.4 55.4
XLUUV (Line 89, Project 3394) XLUUV (Line 89, Project 3394)
115.9 115.9
105.9 105.9
95.9 95.9
92.6 92.6
80.2 80.2
115.9 115.9
89.8 89.8
TOTAL
579.9
376.3
95.9
351.8 339.4
262.5
238.9
Sources: Table prepared by CRS based on FY2021 Navy budget submission,Table prepared by CRS based on FY2021 Navy budget submission, ~~committee~~ committee and conference reports, 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 is Project 3066 within PE (Program Element) 0603178N (line 27 in the Navy’s FY2021 research
and developmentand development account). account). MUSV is Project 3428 within PE 0603178N (line 27). is Project 3428 within PE 0603178N (line 27). LUSV and and MUSV enabling enabling
technologies is Project 3067 within PE 0603178N (line 27). technologies is Project 3067 within PE 0603178N (line 27). XLUUV is Project 3394 within PE 0604536N (line is Project 3394 within PE 0604536N (line
89). 89). HASC is House Armed is House Armed ~~Services~~ Services Committee;Committee; SASC is Senate Armed is Senate Armed ~~Services~~ Services Committee;Committee; HAC is House is House
Appropriations Committee;Appropriations Committee; SAC is Senate Appropriations Committee; is Senate Appropriations Committee; Conf. is conference agreement. is conference agreement.
FY2021 National Defense Authorization Act (H.R. 6395/S. 4049/P.L.
116-283)
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 6395, recommended the funding levels shown in the HASC column ofof Table 2. A recommended A recommended
reduction of $238.6 reduction of $238.6 ~~million~~mil ion (the entire requested amount) for LUSV is for “Two additional (the entire requested amount) for LUSV is for “Two additional
Overlord vessels [being] excess to need.” A recommended increase of $45.0 Overlord vessels [being] excess to need.” A recommended increase of $45.0 ~~million~~mil ion is for is for
converting two Navy Expeditionary Fast Transport ships (EPF) into LUSV prototypes. (Page converting two Navy Expeditionary Fast Transport ships (EPF) into LUSV prototypes. (Page
391) A recommended reduction of $10 391) A recommended reduction of $10 ~~million~~mil ion for XLUUV for XLUUV is for “XLUUVis for “XLUUV late test and 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 states 116-442 states
Expeditionary Fast Transport conversion to an unmanned surface vessel
The The ~~committee recognizes that unmanned surface vessels will play an essential role~~ committee recognizes that unmanned surface vessels will play an essential role in 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
focusedfocused on on the hull. Thethe hull. The desire to move immediately from developmentdesire to move immediately from development ~~into~~ into serial serial
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 thatpiece of this capability and ensuring that technologies that ~~will~~ will need to be developed to need to be developed to
support autonomous operations aresupport autonomous operations are mature before being incorporated on a purpose built 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
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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 Conceptorder to maximize Concept of Operationsof Operations (CONOPS) development.(CONOPS) development. The committee 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 Therefore, the committee recommends $45.0 million in PE 0603178Nin PE 0603178N for the conversion for the conversion
of two Expeditionaryof two Expeditionary Fast Transport (EPF) ships to support autonomous operations and 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 SIVEAND ASSOCIATED OFFEN SIVE WEAPON SYSTEMS. WEAPON SYSTEMS.
(a) LIMITATION ON AVAILABILITY OF FUNDS FOR LUSV.— (a) LIMITATION ON AVAILABILITY OF FUNDS FOR LUSV.—
(1) LIMITATION.—None (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~~
~~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~~ 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 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 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) (2) CERTIFICATION DESCRIBED.—TheCERTIFICATION DESCRIBED.—The certification described in this paragraph is a certification described in this paragraph is a
writtenwritten ~~statement of the Secretary of the~~ statement of the Secretary of the Navy certifying,Navy certifying, with respectwith respect ~~to any~~ to any large 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) (iii) has attained a technology readiness level of seven or greater. 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 The ~~Secretary of the Navy may not integrate any offensive weapon system into a~~ Secretary of the Navy may not integrate any offensive weapon system into a large large
unmanned surface vessel until the date on which the Secretary of the Defense certifiesunmanned surface vessel until the date on which the Secretary of the Defense certifies to to
the congressional defense committees that any large unmanned surface vessel that employs the congressional defense committees that any large unmanned surface vessel that employs
offensiveoffensive ~~weapons will comply with the law of armed conflict. Such certification shall~~
weapons will comply with the law of armed conflict. Such certification shal 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 o4049, recommended the funding levels shown in the SASC column of Table 2. The The
recommended reductions to zero funding line 27 is for “Excess procurement ahead of satisfactory recommended reductions to zero funding line 27 is for “Excess procurement ahead of satisfactory
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testing.” (Page 504) The recommended reduction of $20 testing.” (Page 504) The recommended reduction of $20 ~~million~~mil ion for line 89 is for “Orca UUV for line 89 is for “Orca UUV
[XLUUV][XLUUV] testing delay and uncertified test strategy” ($10.0 testing delay and uncertified test strategy” ($10.0 ~~million~~mil ion) and “Snakehead UUV ) and “Snakehead UUV
uncertified test strategy” ($10 uncertified test strategy” ($10 ~~million~~mil ion). (Page 507) ). (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 (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,~~ of test programs of engineering development models or prototypes for critical systems specified by the Senior Technical Authority in their final form, fit, and 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,
discretediscrete ~~test events, performance parameters to be tested, and schedule required~~ test events, performance parameters to be tested, and schedule required to 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 (b) QUALIFICATION REQUIREMENTS.—The qualification ~~required~~ required in subsection in subsection
(a)(1) shall(a)(1) shall ~~include a land-based operational demonstration of such equipment in~~ include a land-based operational demonstration of such equipment in the the
vessel-representativevessel-representative form, fit, andform, fit, and ~~function for not less than~~ function for not less than 1,080 continuous1,080 continuous hours 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
SecretarySecretary ~~of the Navy shall require that covered programs use only~~ of the Navy shall require that covered programs use only main propulsion 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 (d) LIMITATION.—The Secretary ofSecretary of the Navythe Navy may not releasemay not release a detail designa detail design or
~~construction request for proposals or obligate funds from a procurement account for a~~
~~covered program until such program receives Milestone B approval and the~~ or 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 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
(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.
(4) (4) ~~The term ‘‘Senior Technical Authority’’ has the meaning given the term in~~ The term ‘‘Senior Technical Authority’’ has the meaning given the term in section section
8669b of title 10, United States Code. 8669b of title 10, United States Code.
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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 The committee notes that thenotes that the budget request providesbudget request provides for the prototyping and testing of 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
achieveachieve ~~the objectives of the SCO initiative, which is scheduled to be completed in the~~
~~fourth quarter of fiscal year 2021.~~
~~The committee further notes that the budget request includes plans to award the~~ the objectives of the SCO initiative, which is scheduled to be completed in the fourth quarter of fiscal year 2021. The committee further notes that the budget request includes plans to award the LUSV 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
LUSVLUSV concept of employment, requirements, and reliability for envisioned missions pose concept of employment, requirements, and reliability for envisioned missions pose
excessiveexcessive ~~acquisition risk~~ acquisition risk for additionalfor additional LUSV procurementLUSV procurement in in fiscal yearfiscal year 2021. The 2021. The
committee is also concerned bycommittee is also concerned by the unclear policy implications of LUSVs, including ill-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
YearYear 2020,’’2020,’’ acknowledges similar issues: ‘‘Unmanned and optionally-manned systems acknowledges similar issues: ‘‘Unmanned and optionally-manned systems
are not accounted for in the overall battle force[.] ... The physical challenges of extended are not accounted for in the overall battle force[.] ... The physical challenges of extended
operationsoperations at seaat sea ~~across~~ across the spectrumthe spectrum of competitionof competition and conflict, the conceptsand conflict, the concepts of 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
andand LUSVs to operateLUSVs to operate ~~continuously at sea~~ continuously at sea for at leastfor at least 30 days30 days ~~without~~ without preventative preventative
maintenance, corrective maintenance, or emergent repairs.maintenance, corrective maintenance, or emergent repairs. The committee is unaware of The committee is unaware of
any unmanned vessel of the size or complexity envisioned for MUSV or LUSVany unmanned vessel of the size or complexity envisioned for MUSV or LUSV that has 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~~
~~risk reduction for this program have demonstrated between 2 to 3 days of continuous~~
~~operation. The committee also understands that the SCO vessels are approximately~~ 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 operation. The committee also understands that the SCO vessels are approximately 25 25
percent the size by tonnage of a LUSV, which may limit the applicabilitypercent the size by tonnage of a LUSV, which may limit the applicability of lessons learned 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 subsystemsUSV mechanical and electrical subsystems ~~whose reliability~~ whose reliability is critical to ensuring 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, Accordingly, this provisionthis provision would require at least two main engines andwould require at least two main engines and electrical 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
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 futurein future ~~USVs. The provision would also require the Senior Technical Authority~~ USVs. The provision would also require the Senior Technical Authority and and
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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 The committee views the qualification of theseof these critical subsystems as an essential critical subsystems as an essential
prototypingprototyping ~~step necessary to provide a solid technical foundation for the~~ step necessary to provide a solid technical foundation for the MUSV and MUSV and
LUSV programs.LUSV programs. Rather thanRather than ~~delaying~~ delaying these programs,these programs, ~~the committee believes that~~
the committee believes that qualified enginesqualified engines and generatorsand generators will enable the delivery of capable,will enable the delivery of capable, reliable, and 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 SEC. 237. LIMITATION ~~ON CONTRACT AWARDS FOR~~ ON CONTRACT AWARDS FOR CERTAIN UNMANNED 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
UnderUnder ~~Secretary of Defense for Research and Engineering submits to the~~ Secretary of Defense for Research and Engineering submits to the congressional 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 (b) COVERED VESSELS.—ForVESSELS.—For purposes of this section, a covered vessel is one of the 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 isdescribed 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, (2) a certification, submitted tosubmitted to ~~the congressional~~ the congressional defense committees withdefense committees with ~~the~~ the report report
described in paragraph (1), that certifies that— described in paragraph (1), that certifies that—
(A) the Under Secretary (A) the Under Secretary has determined,has determined, in conjunctionin conjunction with the Senior Technical 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—
(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) (ii) have achieved performance levels equal to or greater than applicable Department of 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 (B) such contract iscontract is ~~necessary to~~ necessary to meet Departmentmeet Department research,research, development,development, test,test, and 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.
(d) (d)
CRITICAL CRITICAL
MISSION, MISSION,
HULL, HULL,
MECHANICAL, MECHANICAL,
AND AND
~~ELECTRICAL~~ELECTRICA L
SUBSYSTEMS DEFINED.—In this section, the term ‘‘critical mission, hull, mechanical, SUBSYSTEMS DEFINED.—In this section, the term ‘‘critical mission, hull, mechanical,
andand electrical subsystems’’,electrical subsystems’’, with respectwith respect to to a covereda covered ~~vessel, includes the~~ vessel, includes the following following
subsystems: subsystems:
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(1) Command, control, communications, computers, intelligence, surveillance, and (1) Command, control, communications, computers, intelligence, surveillance, and
reconnaissance. reconnaissance.
(2) Autonomous (2) Autonomous ~~vessel navigation, vessel control, contact management, and~~ vessel navigation, vessel control, contact management, and contact 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
certificationcertification ~~by the Under Secretary of Defense for Research and Engineering to the~~
~~congressional defense committees prior to the Department of Defense’s contracting~~ by the Under Secretary of Defense for Research and Engineering to the congressional defense committees prior to the Department of Defense’s contracting for 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,Test, ~~and Evaluation funds and that these vessels may include subsystems that lack~~
~~sufficient technical reliability and technological maturity to allow the~~ and Evaluation funds and that these vessels may include subsystems that lack sufficient technical reliability and technological maturity to allow the vessels to meet vessels to meet
threshold requirements. threshold requirements.
The committee seeks The committee seeks ~~to avoid~~ to avoid contracting forcontracting for USVs andUSVs and UUVs whenUUVs when the technical 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 insufficient. For example, the committee notes the Navy requirement for Medium ~~the technical~~
~~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~~
~~insufficient. For example, the committee notes the Navy requirement for Medium~~ and 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
intendedintended ~~to provide risk reduction for the Navy’s LUSV program have demonstrated a~~
~~maximum~~ 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 of 2 to 3 days of continuous operation. The committee also understands that the
SCO vesselsSCO vessels ~~are approximately 25 percent the size by tonnage of a Navy LUSV. As a~~
~~result,~~ are approximately 25 percent the size by tonnage of a Navy LUSV. As a result, the committee is concernedthe committee is concerned ~~that the applicability of lessons learned and~~ that the applicability of lessons learned and risk 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.
The The ~~committee views prior and successful land-based prototyping of individual critical~~
~~subsystems as essential to providing a solid technical foundation~~ committee views prior and successful land-based prototyping of individual critical subsystems as essential to providing a solid technical foundation for USV and UUV 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-basedengineering-based ~~subsystem prototyping approach will enable the delivery of~~ subsystem prototyping approach will enable the delivery of capable, 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 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~~ nonexistent subsystems will rapidly materialize to meet the Navy’s requirements for these these
vessels. (Pages 76-77) vessels. (Pages 76-77)
S.Rept. 116-236 also states S.Rept. 116-236 also states
Testbed for autonomous ship systems
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The budget The budget ~~request~~ request included $122.3 million in Research, Development, Test, and 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 The committee notes that a key technology gapa key technology gap for longfor long -duration autonomous-duration autonomous ~~ship~~
~~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~~ ship 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 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
resilientresilient ~~in order to avoid failure, repair damage, or redirect platforms as needed.~~ in order to avoid failure, repair damage, or redirect platforms as needed. The 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(RDT&E), Navy, of which $464.0 million was for PE 63178N Mediumfor PE 63178N Medium and Large and Large
UnmannedUnmanned ~~Surface Vehicles and~~ Surface Vehicles and $38.4 million was$38.4 million was for PE 63573N Advancedfor PE 63573N Advanced Surface Surface
Machinery Systems. Machinery Systems.
The committee The committee notes that thenotes that the budget request providesbudget request provides for the prototyping and testing of 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
thethe ~~objectives of the SCO initiative, which is scheduled to be completed in the~~ objectives of the SCO initiative, which is scheduled to be completed in t he fourth 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
andand LUSVs to operateLUSVs to operate ~~continuously at sea~~ continuously at sea for at leastfor at least 30 days30 days ~~without~~ without preventative preventative
maintenance, corrective maintenance, or emergent repairsmaintenance, corrective maintenance, or emergent repairs . The committee is unaware of . The committee is unaware of
any unmanned vessel of the size or complexity envisioned for MUSV or LUSVany unmanned vessel of the size or complexity envisioned for MUSV or LUSV that has that has
demonstrated at least 30 days of such operation. demonstrated at least 30 days of such operation.
The The ~~committee understands that the SCO prototype vessels that are intended to~~ committee understands that the SCO prototype vessels that are intended to provide 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.operation. ~~The committee also understands that the SCO vessels are approximately~~ The committee also understands that the SCO vessels are approximately 25 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,critical subsystems, ~~the committee views the main engines and electrical generators~~ the committee views the main engines and electrical generators in in
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 capabilitythe 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 2020for Fiscal Year 2020 (Public Law 116–92),(Public Law 116–92), as well as the qualification of silicon carbide as well as the qualification of silicon carbide
power modules. power modules.
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 PERDT&E, Navy, for PE 63178N,63178N, and an increase of $200.0 million,and an increase of $200.0 million, for a total of $238.4 for a total of $238.4
million in RDT&E, Navy, for PE 63573N. million in RDT&E, Navy, for PE 63573N.
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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
mainmain ~~engine and electrical generator qualification testing directed elsewhere in this Act~~
~~($70.0 million);~~ engine and electrical generator qualification testing directed elsewhere in this Act ($70.0 million); USV autonomy development, which may include conversion of existing USV autonomy development, which may include conversion of existing
vesselsvessels ($45.0 million); accelerating($45.0 million); accelerating ~~ITF testing~~ ITF testing ($75.0 million); and($75.0 million); and ~~accelerating~~ accelerating the the
qualification of silicon carbide power modules ($10.0 million).qualification of silicon carbide power modules ($10.0 million). (Pages 97-98) (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,(RDT&E), Navy, of which $115.9 million was for PE 64536N advancedof which $115.9 million was for PE 64536N advanced undersea 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 thewith the ~~Senate report accompanying the Department of Defense Appropriations Bill,~~
~~2020, incorporated into the Consolidated Appropriations Act, 2020 (S. Rept.~~ Senate report accompanying the Department of Defense Appropriations Bill, 2020, incorporated into the Consolidated Appropriations Act, 2020 (S. Rept. 116–103). 116–103).
Additionally, the committee isAdditionally, the committee is aware of Orca testing delays. 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)
A September 14, 2020, letter and enclosure from the Office of Budget Management (OMB) to the A September 14, 2020, letter and enclosure from the Office of Budget Management (OMB) to the
chairmen and ranking members of the Senate and House Armed Services Committee about chairmen and ranking members of the Senate and House Armed Services Committee about
concerns that the Administration has with certain provisions in S. 4049 stated in part: concerns that the Administration has with certain provisions in S. 4049 stated in part:
The Administration strongly objects to the absence of authorization language and funding The Administration strongly objects to the absence of authorization language and funding
to procure critical prototype vessels. The Administration believes that rigorous land-and to procure critical prototype vessels. The Administration believes that rigorous land-and
sea-basedsea-based ~~testing is needed for a successful Large Unmanned Surface Vessel Program~~
~~(LUSV),~~ testing is needed for a successful Large Unmanned Surface Vessel Program (LUSV), providing a lethal, distributed new capability to the fleet. These funds are critical providing a lethal, distributed new capability to the fleet. These funds are critical
to reduce risk and conduct integration and testing to ensure DOD is postured to transition to reduce risk and conduct integration and testing to ensure DOD is postured to transition
LUSV toLUSV to ~~a program of record in FY 2023. The Administration urges Congress to fully~~ a program of record in FY 2023. The Administration urges Congress to fuly
support this critical capability at the levels in the FY 2021 President’s Budget Request.54 support this critical capability at the levels in the FY 2021 President’s Budget Request.54
Conference
The conference report (H.Rept. 116-617 of December 3, 2020) on H.R. 6395/P.L. 116-283 of The conference report (H.Rept. 116-617 of December 3, 2020) on H.R. 6395/P.L. 116-283 of
January 1, 2021, recommends the funding levels shown in the authorization conference column of January 1, 2021, recommends the funding levels shown in the authorization conference column of
Table 2. The recommended reduction of $204.8 The recommended reduction of $204.8 ~~million~~mil ion for line 27 is for “LUSV additional for line 27 is for “LUSV additional
prototypes’ ($159.3 prototypes’ ($159.3 ~~million~~mil ion) and “Unmanned surface vehicle enabling capabilities—payload ) and “Unmanned surface vehicle enabling capabilities—payload
program reduction” ($45.5 program reduction” ($45.5 ~~million~~mil ion). (PDF pages 4322-4323 of 4517) The recommended ). (PDF pages 4322-4323 of 4517) The recommended
reduction of $23.256 reduction of $23.256 ~~million~~mil ion for line 89 is for “Excess scope adjustments.” (PDF page 4326 of for line 89 is for “Excess scope adjustments.” (PDF page 4326 of
4517) 4517)
Section 122 of the conference version of H.R. 6395 states: of the conference version of H.R. 6395 states:
SEC. 122. LIMITATIONS ON NAVY MEDIUM AND LARGE UNMANNED SEC. 122. LIMITATIONS ON NAVY MEDIUM AND LARGE UNMANNED
SURFACE VESSELS. SURFACE 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—

54 Letter dated September 14, 2020, from Russell T54 Letter dated September 14, 2020, from Russell T . Vought, Director, Office of Management and Budget. Vought, Director, Office of Management and Budget, , to Senator to Senator
James M. Inhofe, Senator Jack Reed,James M. Inhofe, Senator Jack Reed, Representative Adam Smith, and Representative Mac Representative Adam Smith, and Representative Mac ~~Thornberry~~T hornberry with respect to with respect to
the National Defense Authorization Act (NDAA) for FY2021, PDF page 9 of 14, accessedthe National Defense Authorization Act (NDAA) for FY2021, PDF page 9 of 14, accessed September 17, 2020, at September 17, 2020, at
https://www.whitehouse.gov/omb/legislative/letters/. https://www.whitehouse.gov/omb/legislative/letters/.
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(1) qualification by the Senior Technical Authority of— (1) qualification by the Senior Technical Authority of—
(A) (A) ~~at least one representative main propulsion system, including the fuel and lube~~ at least one representative main propulsion system, including the fuel and lube oil oil
systems; and systems; and
(B) at least one representative electrical generation and distribution system; (B) at least one representative electrical generation and distribution system;
(2) final results of test programs of engineering development models or prototypes showing (2) final results of test programs of engineering development models or prototypes showing
that critical systems designated pursuant to subparagraph (C) of section 8669b(c)(2) of title that critical systems designated pursuant to subparagraph (C) of section 8669b(c)(2) of title
10, United States Code, are demonstrated as required by subparagraph (I) of that section; 10, United States Code, are demonstrated as required by subparagraph (I) of that section;
andand ~~(3) a determination by the milestone decision authority of the minimum number~~ (3) a determination by the milestone decision authority of the minimum number of of
vessels, discrete test events, performance parameters to be tested, and schedule required to vessels, 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 REQUIRES OPERATIONAL DEMONSTRATION.—The (b) QUALIFICATION REQUIRES OPERATIONAL DEMONSTRATION.—The
qualification required in subsection (a)(1) shall include a land-based operational qualification required in subsection (a)(1) shall include a land-based operational
demonstration of the systems concerned in the vessel-representative form, fit, and function demonstration of the systems concerned in the vessel-representative form, fit, and function
for notfor not ~~less than 720 continuous hours without~~ less than 720 continuous hours without preventative maintenance,preventative maintenance, corrective corrective
maintenance, emergent repair, or any other form of repair or maintenance. maintenance, emergent repair, or any other form of repair or maintenance.
(c) USE OF QUALIFIED SYSTEMS.—The (c) USE OF QUALIFIED SYSTEMS.—The ~~Secretary of the Navy shall require that~~
~~covered programs~~ Secretary of the Navy shall require that covered programs use only main propulsionuse only main propulsion ~~systems~~ systems and electrical generationand electrical generation and and
distribution systems that are qualified under subsection (a)(1). distribution systems that are qualified under subsection (a)(1).
(d) LIMITATION ON CONTRACT AWARD OR FUNDING.— (d) LIMITATION ON CONTRACT AWARD OR FUNDING.—
(1) IN GENERAL.—The Secretary may not award a detail design or construction contract, (1) IN GENERAL.—The Secretary may not award a detail design or construction contract,
or obligate funds from a procurement account, for a covered program until such program or obligate funds from a procurement account, for a covered program until such program
receives Milestone B approval and the milestone decision authority notifies the receives Milestone B approval and the milestone decision authority notifies the
congressionalcongressional ~~defense committees, in writing, of the actions taken to comply~~ defense committees, in writing, of the actions taken to comply with the with the
requirements under this section. requirements under this section.
(2) EXCEPTION.—The limitation in paragraph (1) does not apply to advanced (2) EXCEPTION.—The limitation in paragraph (1) does not apply to advanced
procurement for government-furnished equipment. procurement for government-furnished equipment.
(e) DEFINITIONS.—In this section: (e) DEFINITIONS.—In this section:
(1) COVERED (1) COVERED PROGRAM.—The term ‘‘covered program’’ means a program for— PROGRAM.—The term ‘‘covered program’’ means a program for—
(A) medium unmanned surface vessels; or (A) medium unmanned surface vessels; or
(B) large unmanned surface vessels. (B) large unmanned surface vessels.
(2) MILESTONE (2) MILESTONE B APPROVAL.—The term ‘‘Milestone B approval’’ has the meaning B APPROVAL.—The term ‘‘Milestone B approval’’ has the meaning
given the term in section 2366(e)(7) of title 10, United States Code. given the term in section 2366(e)(7) of title 10, United States Code.
(3) MILESTONE DECISION (3) MILESTONE DECISION AUTHORITY.—The term ‘‘milestone decision authority’’ AUTHORITY.—The term ‘‘milestone decision authority’’
means the official within the Department of Defense designated withmeans the official within the Department of Defense designated with ~~the overall~~
the overal responsibility and authority for acquisition decisions for an acquisition program, including responsibility and authority for acquisition decisions for an acquisition program, including
authority to approve entry of the program into the next phase of the acquisition process. authority to approve entry of the program into the next phase of the acquisition process.
(4) SENIOR TECHNICAL AUTHORITY.—The term ‘‘Senior Technical Authority’’ has (4) SENIOR TECHNICAL AUTHORITY.—The term ‘‘Senior Technical Authority’’ has
the meaning provided for in section 8669b of title 10, United States Code. the meaning provided for in section 8669b of title 10, United States Code.
Regarding Section 122, H.Rept. 116-617 states: Regarding Section 122, H.Rept. 116-617 states:
Limitations on Navy medium and large unmanned surface vessels (sec. 122) Limitations on Navy medium and large unmanned surface vessels (sec. 122)
The The ~~Senate amendment contained a provision (sec. 122) that would require that~~ Senate amendment contained a provision (sec. 122) that would require that certain certain
technical conditions be met prior to Milestone B approval for medium and large unmanned technical conditions be met prior to Milestone B approval for medium and large unmanned
surface vessels. surface vessels.
The House bill contained no similar provision. The House bill contained no similar provision.
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The House recedes with an amendment that would reduce the minimum number The House recedes with an amendment that would reduce the minimum number ofo f certain certain
systems to be qualified and the period of continuous operation of such systems to satisfy systems to be qualified and the period of continuous operation of such systems to satisfy
qualification requirements, asqualification requirements, as well as allow the Secretarywell as allow the Secretary of theof the Navy to release certain Navy to release certain
requestsrequests for proposals and contract for certainfor proposals and contract for certain ~~government~~ government furnished equipment prior to furnished equipment prior to
Milestone B approval for medium and large unmanned surface vessels. (PDF page 3730 of Milestone B approval for medium and large unmanned surface vessels. (PDF page 3730 of
4517) 4517)
Section 227 of the conference version of H.R. 6395 states: of the conference version of H.R. 6395 states:
SEC. 227. LIMITATION SEC. 227. LIMITATION ~~ON CONTRACT AWARDS FOR~~ ON CONTRACT AWARDS FOR CERTAIN UNMANNED CERTAIN UNMANNED
VESSELS. VESSELS.
(a) LIMITATION.—Not less than 30 days before awarding a contract using any funds from (a) LIMITATION.—Not less than 30 days before awarding a contract using any funds from
thethe Research,Research, Development,Development, ~~Test, and Evaluation, Navy account for the purchase of a~~
~~covered vessel, the Secretary of the Navy shall submit to the congressional defense~~
~~committees a report and certification described in subsection (c) for such contract and~~
~~covered vessel.~~
~~(b) COVERED VESSELS.—For~~ Test, and Evaluation, Navy account for the purchase of a covered vessel, the Secretary of the Navy shall submit to the congressional defense committees a report and certification described in subsection (c) for such contract and covered vessel. (b) COVERED VESSELS.—For purposes of this section, a covered vessel is one of the 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).
(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 isdescribed 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;of the completion of an independent technical risk assessment for such covered vessel;
(B) on the findings and recommendations of the Senior Technical Authority for the class (B) on the findings and recommendations of the Senior Technical Authority for the class
of naval vessels that includes the covered vessel with respect to such assessment; and of naval vessels that includes the covered vessel with respect to such assessment; and
(C) that includes such assessment; and (C) that includes such assessment; and
(2) a certification, (2) a certification, submitted tosubmitted to ~~the congressional~~ the congressional defense committees withdefense committees with ~~the~~ the report report
described in paragraph (1), that certifies that— described in paragraph (1), that certifies that—
(A) the Secretary has determined, in conjunction with the Senior Technical Authority (A) the Secretary has determined, in conjunction with the Senior Technical Authority for for
the class of naval vessels that includes the covered vessel, that the critical mission, the class of naval vessels that includes the covered vessel, that the critical mission, ~~hull~~hul, ,
mechanical, and electrical subsystems of the covered vessel— mechanical, and electrical subsystems of the covered vessel—
(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 Depart (ii) have achieved performance levels equal to or greater than applicable Depart
ment of Defense threshold requirements for such class of vessels or have maturation plans ment of Defense threshold requirements for such class of vessels or have maturation plans
inin ~~place to achieve such performance levels prior to transition to a program of~~ place to achieve such performance levels prior to transition to a program of record, record,
including a detailed description of such achieved performance or maturation plans; and including a detailed description of such achieved performance or maturation plans; and
(B) such (B) such contract iscontract is ~~necessary to~~ necessary to meet Departmentmeet Department research,research, development,development, test,test, and 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.
(d) LIMITATION ON WEAPON INTEGRATION.— (d) LIMITATION ON WEAPON INTEGRATION.—
(1) IN GENERAL.—The Secretary may not integrate any offensive weapon system into a (1) IN GENERAL.—The Secretary may not integrate any offensive weapon system into a
covered vessel until the date that is 30 days after the date on which the Secretary of the covered vessel until the date that is 30 days after the date on which the Secretary of the
Defense certifies to the congressional defense committees that such covered vessel— Defense certifies to the congressional defense committees that such covered vessel—
(A) will comply with applicable laws, including the law of armed conflict, with a detailed (A) will comply with applicable laws, including the law of armed conflict, with a detailed
explanation of how such compliance will be achieved; and explanation of how such compliance will be achieved; and
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(B) (B) has been determined to be the most appropriate surface vessel to meet applicable of has been determined to be the most appropriate surface vessel to meet applicable of
fensive military requirements. fensive military requirements.
(2) COMPLETION OF ANALYSIS OF ALTERNATIVES REQUIRED.—A (2) COMPLETION OF ANALYSIS OF ALTERNATIVES REQUIRED.—A
determinationdetermination ~~under paragraph~~ under paragraph (1)(B) shall be(1)(B) shall be made onlymade only after theafter the completion ofcompletion of an an
analysis of alternatives that— analysis of alternatives that—
(A) is described in subsection (e)(1); and (A) is described in subsection (e)(1); and
(B) supports such determination. (B) supports such determination.
(e) SUBMITTAL OF ANALYSIS OF ALTERNATIVES TO CONGRESS.— (e) SUBMITTAL OF ANALYSIS OF ALTERNATIVES TO CONGRESS.—
(1) ANALYSIS (1) ANALYSIS OF ALTERNATIVES REQUIRED.—Not laterOF ALTERNATIVES REQUIRED.—Not later ~~than one year after~~ than one year after the the
date of the enactment of this Act, the Secretary shall submit to the congressional defense date of the enactment of this Act, the Secretary shall submit to the congressional defense
committeescommittees an analysisan analysis of alternativesof alternatives regarding covered vessels withregarding covered vessels with an integrated an integrated
offensiveoffensive ~~weapon system and the most appropriate surface vessels to~~ weapon system and the most appropriate surface vessels to meet applicable meet applicable
offensive military requirements. offensive military requirements.
(2) CONTENTS.—The analysis submitted (2) CONTENTS.—The analysis submitted under paragraph (1) shall include, at a under paragraph (1) shall include, at a
minimum,minimum, the following elements: the following elements:
(A) Identification (A) Identification of capability needsof capability needs ~~applicable to such covered vessels,~~ applicable to such covered vessels, including including
offensive strike capability and capacity from the Mark–41 vertical launch system. offensive strike capability and capacity from the Mark–41 vertical launch system.
(B) Projected threats. (B) Projected threats.
(C) Projected operational environments. (C) Projected operational environments.
(D) Projected operational concepts. (D) Projected operational concepts.
(E) Projected operational requirements. (E) Projected operational requirements.
(F) Status quo (baseline) and surface vessel alternatives able to meet the capability (F) Status quo (baseline) and surface vessel alternatives able to meet the capability needs needs
identified in subparagraph (A), including— identified in subparagraph (A), including—
(i) modified naval vessel designs, including amphibious ships, expeditionary (i) modified naval vessel designs, including amphibious ships, expeditionary fast fast
transports, and expeditionary sea bases; transports, and expeditionary sea bases;
(ii) modified commercial vessel designs, including container ships and bulk carriers; (ii) modified commercial vessel designs, including container ships and bulk carriers;
(iii) (iii) new naval vessel designs; and new naval vessel designs; and
(iv) new commercial vessel designs. (iv) new commercial vessel designs.
(G) (G) Vessel design, performance, and measures of effectiveness of the baseline and each Vessel design, performance, and measures of effectiveness of the baseline and each
alternative,alternative, including aincluding a ~~description of~~ description of critical mission,critical mission, hull, mechanical,hull, mechanical, ~~and~~ and electrical electrical
subsystems. subsystems.
(H) Estimated research, (H) Estimated research, development,development, ~~test, and evaluation cost of baseline and~~ test, and evaluation cost of baseline and each each
alternative. alternative.
(I) Estimated lead vessel and average follow-on vessel procurement costs of baseline and (I) Estimated lead vessel and average follow-on vessel procurement costs of baseline and
each alternative. each alternative.
(J) Life-cycle costs of baseline and each alternative. (J) Life-cycle costs of baseline and each alternative.
(K) Life-cycle cost per baseline vessel and each alternative vessel. (K) Life-cycle cost per baseline vessel and each alternative vessel.
(L) Life-cycle cost per specified quantity of baseline vessels and alternative vessels. (L) Life-cycle cost per specified quantity of baseline vessels and alternative vessels.
(M) Technology readiness assessment of baseline and each alternative. (M) Technology readiness assessment of baseline and each alternative.
(N) Analysis of alternatives, including relative cost and capability performance of base line (N) Analysis of alternatives, including relative cost and capability performance of base line
and alternative vessels. and alternative vessels.
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(O) Trade-off analysis. (O) Trade-off analysis.
(P) Sensitivity analysis. (P) Sensitivity analysis.
(Q) Conclusions (Q) Conclusions ~~and~~ and recommendations,recommendations, which if thewhich if the ~~Secretary of Defense deems~~ Secretary of Defense deems it it
appropriate, shall include the determination required under subsection (d)(1)(B). appropriate, shall include the determination required under subsection (d)(1)(B).
(f) DEFINITIONS.—In this section: (f) DEFINITIONS.—In this section:
(1) The term ‘‘critical mission, hull, mechanical, and electrical subsystems’’, with respect (1) The term ‘‘critical mission, hull, mechanical, and electrical subsystems’’, with respect
to a covered vessel, includes the following subsystems: to a covered vessel, includes the following subsystems:
(A) Command, control, communications, computers, intelligence, surveillance, and (A) Command, control, communications, computers, intelligence, surveillance, and
reconnaissance. reconnaissance.
(B) Autonomous vessel (B) Autonomous vessel navigation,navigation, ~~vessel control, contact~~ vessel control, contact management,management, and contact and contact
avoidance. avoidance.
(C) Communications security, including cryptopgraphy, encryption, and decryption. (C) Communications security, including cryptopgraphy, encryption, and decryption.
(D) Main engines, including the lube oil, fuel oil, and other supporting systems. (D) Main engines, including the lube oil, fuel oil, and other supporting systems.
(E) Electrical generation and distribution, including supporting systems. (E) Electrical generation and distribution, including supporting systems.
(F) Military payloads. (F) Military payloads.
(G) (G) Any other subsystem identifiedAny other subsystem identified as critical by the Senior Technical Authority for the as critical by the Senior Technical Authority for the
class of naval vessels that includes the covered vessel. class of naval vessels that includes the covered vessel.
(2) The term ‘‘Senior Technical Authority’’ means, with respect to a class of naval vessels, (2) The term ‘‘Senior Technical Authority’’ means, with respect to a class of naval vessels,
thethe ~~Senior Technical Authority designated for that class of naval vessels under~~ Senior Technical Authority designated for that class of naval vessels under section section
8669b of title 10, United States Code. 8669b of title 10, United States Code.
Regarding Section 227, H.Rept. 116-617 states: Regarding Section 227, H.Rept. 116-617 states:
Limitation on contract awards for certain unmanned vessels (sec. 227)
The House bill contained a provision (sec. 230) that would prohibit the procurement of any The House bill contained a provision (sec. 230) that would prohibit the procurement of any
large unmanned surfacelarge unmanned surface ~~vessels~~ vessels in fiscal year 2021 until a certification regarding in fiscal year 2021 until a certification regarding
technology maturity has been submitted to the Congress, as well as prohibit the inclusion technology maturity has been submitted to the Congress, as well as prohibit the inclusion
of offensive weapons systems in such vessels until the Secretary of Defense certifies how of offensive weapons systems in such vessels until the Secretary of Defense certifies how
these systems will comply with the Law of Armed Conflict. these systems will comply with the Law of Armed Conflict.
The The ~~Senate amendment contained a~~ Senate amendment contained a similar provisionsimilar provision (sec.(sec. ~~237) that would require~~ 237) that would require the the
submissionsubmission of a certificationof a certification by the Under Secretaryby the Under Secretary of Defenseof Defense for Researchfor Research and and
Engineering prior to contracting for certain vessels. Engineering prior to contracting for certain vessels.
The House recedes with an amendment that would change the submitter of the certification The House recedes with an amendment that would change the submitter of the certification
to the Secretary of the Navy, remove unmanned underwater vehicles as covered vessels, to the Secretary of the Navy, remove unmanned underwater vehicles as covered vessels,
and add a limitation on the integration of offensive weapons into covered vessels until an and add a limitation on the integration of offensive weapons into covered vessels until an
analysis of alternatives is conducted and a Secretary of Defense certification is made. (PDF analysis of alternatives is conducted and a Secretary of Defense certification is made. (PDF
page 3763 of 4517) page 3763 of 4517)
FY2021 DOD Appropriations Act (H.R. 7617/S. XXXX/Division C of
H.R. 133/P.L. 116-260)
House
The House Appropriations Committee, in its report (H.Rept. 116-453 of July 16, 2020) on H.R. The House Appropriations 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 7617, recommended the funding levels shown in the HAC column ofof Table 2. A recommended A recommended
reduction of $159.3 reduction of $159.3 ~~million~~mil ion for LUSV is for “LUSV additional prototypes.” (Page 266) A for LUSV is for “LUSV additional prototypes.” (Page 266) A
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recommended reduction of $45.5 recommended reduction of $45.5 ~~million~~mil ion for LUSV and MUSV enabling technologies is for 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 recommended reduction of $35.626 ~~million~~mil ion for line 89 is for “Test and evaluation delays.” (Page for line 89 is for “Test and evaluation delays.” (Page
268) 268)
Senate
The Senate Appropriations Committee, in the explanatory statement for S. XXXX that the The Senate Appropriations Committee, in the explanatory statement for S. XXXX that the
committee released on November 10, 2020, recommended the funding levels shown in the SAC committee released on November 10, 2020, recommended the funding levels shown in the SAC
column column ofof Table 2. The recommended reduction of $372.842 The recommended reduction of $372.842 ~~million~~mil ion to line 27 reflects a to line 27 reflects a
restructuring of funding for the LUSV and MUSV programs and their enabling technologies restructuring of funding for the LUSV and MUSV programs and their enabling technologies
involving seven changes to requested funding levels, including three transfers of funding totaling involving seven changes to requested funding levels, including three transfers of funding totaling
$55.402 $55.402 ~~million~~mil ion to a newly created line 27A for MUSVs. (Pages 185-186) The committee to a newly created line 27A for MUSVs. (Pages 185-186) The committee
recommended a reduction of $23.256 recommended a reduction of $23.256 ~~million~~mil ion to line 89 for “Restoring acquisition accountability: to line 89 for “Restoring acquisition accountability:
Excess scope adjustments.” (Page 187). Excess scope adjustments.” (Page 187).
The committee’s explanatory statement states: The committee’s explanatory statement states:
Unmanned ~~Surface Vessels~~~~.—The fiscal year 2021 President’s budget request~~ Surface Vessels.—The fiscal year 2021 President’s budget request includes includes
$437,740,000$437,740,000 for the procurement of two Large Unmanned Surface Vessels [LUSVs] and for the procurement of two Large Unmanned Surface Vessels [LUSVs] and
containerized payloads, as well as for the development of a modified combat system and containerized payloads, as well as for the development of a modified combat system and
enablingenabling ~~capabilities to prototype and demonstrate technologies in support of~~ capabilities to prototype and demonstrate technologies in support of a LUSV a LUSV
program of record in fiscal year 2023 that includes an integrated Vertical Launch System program of record in fiscal year 2023 that includes an integrated Vertical Launch System
[VLS] payload.[VLS] payload. Additionally,Additionally, ~~the~~ the fiscal yearfiscal year 2021 President’s budget2021 President’s budget ~~request~~ request includes includes
$26,302,000$26,302,000 to complete detailed design and oversight of a prototype Medium Unmanned to complete detailed design and oversight of a prototype Medium Unmanned
SurfaceSurface ~~Vessel~~ Vessel [MUSV] that[MUSV] that ~~carries~~ carries non-kineticnon-kinetic ~~payloads, and the Navy has~~ payloads, and the Navy has budgeted budgeted
funds for the procurement of an additional MUSV in fiscal year 2023. Subsequent to the funds for the procurement of an additional MUSV in fiscal year 2023. Subsequent to the
budget submission, the Navy revised its fiscal year 2021 acquisition and budget requests budget submission, the Navy revised its fiscal year 2021 acquisition and budget requests
for both the LUSV and MUSV programs and requested that funds be appropriated for the for both the LUSV and MUSV programs and requested that funds be appropriated for the
first year of a two-year Comprehensive Reliability Plan [CRP] for both programs in lieu of first year of a two-year Comprehensive Reliability Plan [CRP] for both programs in lieu of
~~additional~~ additional LUSV platforms and payloads,LUSV platforms and payloads, while maintaining the Navy’swhile maintaining the Navy’s previously previously
planned fiscal year 2023 establishment of a LUSV program of record with an integrated planned fiscal year 2023 establishment of a LUSV program of record with an integrated
VLS. VLS.
The The ~~Committee notes that the mission requirements and concepts of operations for the~~
~~LUSV and MUSV programs remain an evolving work in progress, and that~~ Committee notes that the mission requirements and concepts of operations for the LUSV and MUSV programs remain an evolving work in progress, and that concerns concerns
previously expressed by the appropriations committees with respect to a VLS payload on previously expressed by the appropriations committees with respect to a VLS payload on
a LUSVa LUSV have not been sufficiently addressed. However, the Committee does believe that have not been sufficiently addressed. However, the Committee does believe that
demonstratingdemonstrating ~~the reliability of some key technologies of unmanned surface vessels~~ the reliability of some key technologies of unmanned surface vessels is is
critical to acquisition success of any such platforms. critical to acquisition success of any such platforms.
As such, the Committee recommends fully funding the MUSV program in fiscal year 2021, As such, the Committee recommends fully funding the MUSV program in fiscal year 2021,
to includeto include ~~the~~ the Navy’s requested realignment of $29,100,000 fromNavy’s requested realignment of $29,100,000 from ~~LUSV~~ LUSV to theto the MUSV MUSV
program in support of a MUSV CRP. The Committee also recommends full funding for program in support of a MUSV CRP. The Committee also recommends full funding for
the development of enabling capabilities such as autonomy, command and control, sensors, the development of enabling capabilities such as autonomy, command and control, sensors,
andand ~~experimentation. The Committee recommends no funding for additional LUSVs, a~~
~~LUSV combat system, combat system modifications, or LUSV payloads in fiscal year~~
~~2021.~~ experimentation. The Committee recommends no funding for additional LUSVs, a LUSV combat system, combat system modifications, or LUSV payloads in fiscal year 2021. The Committee notes that the Navy will take possession of two prototype LUSVs The Committee notes that the Navy will take possession of two prototype LUSVs
from the Strategic Capabilities Office at the end of fiscal year 2021 and that in fiscal year from the Strategic Capabilities Office at the end of fiscal year 2021 and that in fiscal year
2020,2020, Congress appropriated funding for two additional LUSVs to the Navy that are also Congress appropriated funding for two additional LUSVs to the Navy that are also
scheduled to deliver to the Navy at the end of fiscal year 2021. The Committee believes scheduled to deliver to the Navy at the end of fiscal year 2021. The Committee believes
thatthat ~~the Navy has sufficient prototypes on-hand to define LUSV and MUSV missions,~~
~~program requirements, and concepts of operations in alignment with key~~ the Navy has sufficient prototypes on-hand to define LUSV and MUSV missions, program requirements, and concepts of operations in alignment with key stakeholders. stakeholders.
Finally, Congress in fiscal year 2020 appropriated funding for concept design studies to Finally, Congress in fiscal year 2020 appropriated funding for concept design studies to
informinform ~~future detail design and construction of a LUSV and recommends an~~ future detail design and construction of a LUSV and recommends an additional additional
$10,000,000,$10,000,000, as requested by the Navy, in fiscal year 2021 for these efforts. The Committee as requested by the Navy, in fiscal year 2021 for these efforts. The Committee
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link to page 30 link to page 30 Navy Large Unmanned Surface and Undersea Vehicles

notes that this does not constitute endorsement of integrating VLS on LUSVs. (Pages 191- notes that this does not constitute endorsement of integrating VLS on LUSVs. (Pages 191-
192) 192)
Conference
The explanatory statement for the final version of the FY2021 DOD Appropriations Act (Division The explanatory statement for the final version of the FY2021 DOD Appropriations Act (Division
C of H.R. 133/P.L. 116-260 of December 26, 2020, the Consolidated Appropriations Act, 2021) C of H.R. 133/P.L. 116-260 of December 26, 2020, the Consolidated Appropriations Act, 2021)
provides the funding levels shown in the appropriation conference column provides the funding levels shown in the appropriation conference column ofof Table 2. The The
reduction of $370.342 reduction of $370.342 ~~million~~mil ion to line 27 reflects a restructuring of funding for the LUSV and to line 27 reflects a restructuring of funding for the LUSV and
MUSV programs and their enabling technologies involvingMUSV programs and their enabling technologies involving eight changes to requested funding eight changes to requested funding
levels, including two transfers of funding totaling $55.402 levels, including two transfers of funding totaling $55.402 ~~million~~mil ion to a newly created line 27A for to a newly created line 27A for
MUSVs. (PDF page 310 of 469) The reduction of $26.046 MUSVs. (PDF page 310 of 469) The reduction of $26.046 ~~million~~mil ion to line 89 is for “Test and to line 89 is for “Test and
evaluation delays.” (PDF page 313 of 469) evaluation delays.” (PDF page 313 of 469)

Author Information

Ronald O'Rourke Ronald O'Rourke

Specialist in Naval Affairs Specialist in Naval Affairs

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