Navy Medium Landing Ship (LSM) Program: Background and Issues for Congress

Changes from March 2, 2021 to April 1, 2021

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Navy Light Amphibious Warship (LAW)
~~March 2~~April 1, 2021 , 2021
Program: Background and Issues for Congress
Ronald O'Rourke
The Navy’s new Light Amphibious Warship (LAW) program envisions procuring a class of 28 to The Navy’s new Light Amphibious Warship (LAW) program envisions procuring a class of 28 to
Specialist in Naval Affairs Specialist in Naval Affairs
30 new amphibious ships to support the Marine Corps, particularly in implementing a new 30 new amphibious ships to support the Marine Corps, particularly in implementing a new

Marine Corps operational concept called Expeditionary Advanced Base Operations (EABO). The Marine Corps operational concept called Expeditionary Advanced Base Operations (EABO). The
Navy envisions the first LAW being procured in FY2022. Navy envisions the first LAW being procured in FY2022.

The Navy’s proposed FY2021 budget requested $30 million in research and development funding for initial industry studies The Navy’s proposed FY2021 budget requested $30 million in research and development funding for initial industry studies
and concept design work on the ship. As part of its action on the Navy’s proposed FY2021 budget, Congress provided $24.0 and concept design work on the ship. As part of its action on the Navy’s proposed FY2021 budget, Congress provided $24.0
million in research and development funding for the program. million in research and development funding for the program.
The EABO concept was developed with an eye toward potential conflict scenarios with China in the Western Pacific. Under The EABO concept was developed with an eye toward potential conflict scenarios with China in the Western Pacific. Under
the concept, the Marine Corps envisions, among other things, having reinforced-platoon-sized Marine Corps units maneuver the concept, the Marine Corps envisions, among other things, having reinforced-platoon-sized Marine Corps units maneuver
around the theater, moving from island to island, to fire anti-ship cruise missiles (ASCMs) and perform other missions so as around the theater, moving from island to island, to fire anti-ship cruise missiles (ASCMs) and perform other missions so as
to contribute, alongside Navy and other U.S. military forces, to U.S. operations to counter and deny sea control to Chinese to contribute, alongside Navy and other U.S. military forces, to U.S. operations to counter and deny sea control to Chinese
forces. The LAW ships would be instrumental to these operations, with LAWs embarking, transporting, landing, and forces. The LAW ships would be instrumental to these operations, with LAWs embarking, transporting, landing, and
subsequently reembarking these small Marine Corps units. subsequently reembarking these small Marine Corps units.
As conceived by the Navy and Marine Corps, LAWs would be much smaller and individually much less expensive to procure As conceived by the Navy and Marine Corps, LAWs would be much smaller and individually much less expensive to procure
and operate than the Navy’s current amphibious ships. The Navy wants LAWs to be 200 to 400 feet in length, and to have a and operate than the Navy’s current amphibious ships. The Navy wants LAWs to be 200 to 400 feet in length, and to have a
unit procurement cost of $100 million to $150 million. unit procurement cost of $100 million to $150 million.
The LAW as outlined by the Navy is small enough that it could be built by any of several U.S. shipyards. The Navy states The LAW as outlined by the Navy is small enough that it could be built by any of several U.S. shipyards. The Navy states
that in response to an initial request for information (RFI) about the LAW, it received responses from 13 firms, including that in response to an initial request for information (RFI) about the LAW, it received responses from 13 firms, including
nine shipyards. The Navy’s baseline preference is to have a single shipyard build all 28 to 30 ships, but the Navy is open to nine shipyards. The Navy’s baseline preference is to have a single shipyard build all 28 to 30 ships, but the Navy is open to
having them built in multiple yards to the same design if doing so could permit the program to be implemented more quickly having them built in multiple yards to the same design if doing so could permit the program to be implemented more quickly
and/or less expensively. and/or less expensively.
The LAW program poses a number of potential oversight matters for Congress, including the merits of the EABO concept, The LAW program poses a number of potential oversight matters for Congress, including the merits of the EABO concept,
how LAWs would fit into the Navy’s future fleet architecture, the Navy’s preliminary unit procurement cost target for the how LAWs would fit into the Navy’s future fleet architecture, the Navy’s preliminary unit procurement cost target for the
ship, and the industrial-base implications of the program. ship, and the industrial-base implications of the program.
The issue for Congress is whether to approve, reject, or modify the Navy’s annual funding requests and envisioned The issue for Congress is whether to approve, reject, or modify the Navy’s annual funding requests and envisioned
acquisition strategy for the program. Congress’s decisions regarding the program could affect Navy and Marine Corps acquisition strategy for the program. Congress’s decisions regarding the program could affect Navy and Marine Corps
capabilities and funding requirements and the U.S. shipbuilding industrial base. capabilities and funding requirements and the U.S. shipbuilding industrial base.
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Navy Light Amphibious Warship (LAW) Program: Background and Issues for Congress

Introduction
This report provides background information and issues for Congress on the Navy’s new Light This report provides background information and issues for Congress on the Navy’s new Light
Amphibious Warship (LAW) program, which envisions procuring a class of 28 to 30 new Amphibious Warship (LAW) program, which envisions procuring a class of 28 to 30 new
amphibious ships to support the Marine Corps, particularly in implementing a new Marine Corps amphibious ships to support the Marine Corps, particularly in implementing a new Marine Corps
operational concept operational concept ~~called~~cal ed Expeditionary Advanced Base Operations (EABO). The Navy Expeditionary Advanced Base Operations (EABO). The Navy
envisions the first LAW being procured in FY2022. envisions the first LAW being procured in FY2022.
The Navy’s proposed FY2021 budget requested $30 The Navy’s proposed FY2021 budget requested $30 ~~million~~mil ion in research and development funding in research and development funding
for initialfor initial industry studies and concept design work on the ship. As part of its action on the industry studies and concept design work on the ship. As part of its action on the
Navy’s proposed FY2021 budget, Congress provided $24.0 Navy’s proposed FY2021 budget, Congress provided $24.0 ~~million~~mil ion in research and development in research and development
funding for the program. funding for the program.
The LAW program poses a number of potential oversight matters for Congress. The issue for The LAW program poses a number of potential oversight matters for Congress. The issue for
Congress is whether to approve, reject, or modify the Navy’s annual funding requests and Congress is whether to approve, reject, or modify the Navy’s annual funding requests and
envisioned acquisition strategy for the program. Congress’s decisions regarding the program envisioned acquisition strategy for the program. Congress’s decisions regarding the program
could affect Navy and Marine Corps capabilities and funding requirements and the U.S. could affect Navy and Marine Corps capabilities and funding requirements and the U.S.
shipbuilding industrial base. shipbuilding industrial base.
A separate CRS report discusses the Navy’s programs for building much-larger LPD-17 Flight II A separate CRS report discusses the Navy’s programs for building much-larger LPD-17 Flight II
and LHA-class amphibious ships.1 Other CRS reports provide an overview of new Navy and and LHA-class amphibious ships.1 Other CRS reports provide an overview of new Navy and
Marine Corps operational concepts, including EABO, the Marine Corps operational concepts, including EABO, the ~~overall~~ overal strategic and budgetary context strategic and budgetary context
in which amphibious ship and other Navy shipbuildingin which amphibious ship and other Navy shipbuilding programs may be considered, and the programs may be considered, and the
Marine Corps’ plans for redesigning Marine Corps units and their equipment.2 Marine Corps’ plans for redesigning Marine Corps units and their equipment.2
Background
U.S. Navy Amphibious Ships in General
Roles and Missions
Navy amphibious ships are operated by the Navy, with crews consisting of Navy personnel. They Navy amphibious ships are operated by the Navy, with crews consisting of Navy personnel. They
are battle force ships, meaning ships that count toward the quoted size of the Navy. The primary are battle force ships, meaning ships that count toward the quoted size of the Navy. The primary
function of Navy amphibious ships is to lift (i.e., transport) embarked U.S. Marines and their function of Navy amphibious ships is to lift (i.e., transport) embarked U.S. Marines and their
weapons, equipment, and supplies to distant operating areas, and enable Marines to conduct weapons, equipment, and supplies to distant operating areas, and enable Marines to conduct
expeditionary operations ashore in those areas. Although amphibious ships can be used to support expeditionary operations ashore in those areas. Although amphibious ships can be used to support
Marine landings against opposing military forces, they are also used for operations in permissive Marine landings against opposing military forces, they are also used for operations in permissive
or benign situations where there are no opposing forces. Due to their large storage spaces and or benign situations where there are no opposing forces. Due to their large storage spaces and
their ability to use helicopters and landing craft to transfer people, equipment, and supplies from their ability to use helicopters and landing craft to transfer people, equipment, and supplies from

~~1 CRS~~ 1 CRS Report R43543, Report R43543, Navy LPD-17 Flight II and LHA Amphibious Ship Programs: Background and Issues for
Congress, by Ronald, by Ronald O'Rourke. O'Rourke.
2 CRS 2 CRS Report RL32665, Report RL32665, Navy Force Structure and Shipbuilding Plans: Background and Issues for Congress, by , by
Ronald O'Rourke;Ronald O'Rourke; and CRSand CRS Insight IN11281, Insight IN11281, New U.S. Marine Corps Force Design Initiatives, by Andrew, by Andrew Feickert ~~Feickert~~. .
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ship to shore without need for port facilities,3 amphibious ships are ship to shore without need for port facilities,3 amphibious ships are ~~potentially~~ potential y useful for a range useful for a range
of combat and noncombat operations.4 of combat and noncombat operations.4
On any given day, some of the Navy’s amphibious ships, like some of the Navy’s other ships, are On any given day, some of the Navy’s amphibious ships, like some of the Navy’s other ships, are
forward-deployed to various overseas operating areas in multiship formations forward-deployed to various overseas operating areas in multiship formations ~~called~~cal ed amphibious amphibious
groups (ARGs). Amphibious ships are also sometimes forward-deployed on an individual basis, groups (ARGs). Amphibious ships are also sometimes forward-deployed on an individual basis,
particularly for conducting peacetime engagement activities with foreign countries or for particularly for conducting peacetime engagement activities with foreign countries or for
responding to responding to ~~smaller~~smal er-scale or noncombat contingencies. -scale or noncombat contingencies.
Current Types of Amphibious Ships
The Navy’s current amphibious-ship force consists entirely of large amphibious ships, including The Navy’s current amphibious-ship force consists entirely of large amphibious ships, including
the so-the so-~~called~~cal ed “big-deck” amphibious assault ships, designated LHA and LHD, which look like “big-deck” amphibious assault ships, designated LHA and LHD, which look like
medium-sized aircraft carriers, and the medium-sized aircraft carriers, and the ~~smaller (but still~~ smal er (but stil quite sizeable) amphibious ships, quite sizeable) amphibious ships,
designated LPD or LSD, which are sometimes designated LPD or LSD, which are sometimes ~~called “small~~cal ed “smal -deck” amphibious ships.5 As -deck” amphibious ships.5 As
mentioned earlier, a separate CRS report discusses the Navy’s current programs for procuring mentioned earlier, a separate CRS report discusses the Navy’s current programs for procuring
new LHA- and LPD-type ships.6 The LAWs discussed in this CRS report would be much new LHA- and LPD-type ships.6 The LAWs discussed in this CRS report would be much ~~smaller~~
smal er than the Navy’s current amphibious ships. than the Navy’s current amphibious ships.
Amphibious Fleet Force-Level Goal
Current Force-Level Goal
The Navy’s current 355-ship force-level goal, which was released on December 15, 2016, The Navy’s current 355-ship force-level goal, which was released on December 15, 2016, ~~calls~~cal s
for achieving and maintaining a fleet of 355 ships, including 38 amphibious ships, of which 12 for achieving and maintaining a fleet of 355 ships, including 38 amphibious ships, of which 12
are to be 12 LHA/LHD-typeare to be 12 LHA/LHD-type ships and 26 are to be LPD-17 Flight I and Flight II ships.7 This ships and 26 are to be LPD-17 Flight I and Flight II ships.7 This

3 Amphibious ships have berthing spaces for Marines; storage space for their wheeled vehicles, their other combat 3 Amphibious ships have berthing spaces for Marines; storage space for their wheeled vehicles, their other combat
equipment, and their supplies; flight decks and hangar decks for their helicopters and vertical take-off and landing equipment, and their supplies; flight decks and hangar decks for their helicopters and vertical take-off and landing
((~~VTOL~~VT OL) fixed-wing) fixed-wing aircraft ~~aircraft~~; and in many cases; and in many cases ~~well~~ well decks for storing anddecks for storing and launching their landing craftlaunching their landing craft . (A well. (A well deck is deck is
a large, garage-like space in the stern of the ship. It can be flooded with water so that landing craft can leave or return a large, garage-like space in the stern of the ship. It can be flooded with water so that landing craft can leave or return
to the ship. Access to the well deckto the ship. Access to the well deck is protected by a largeis protected by a large stern gate that is somewhat like a garagestern gate that is somewhat like a garage door.door. ) )
4 Amphibious ships and their embarked Marine forces can be used4 Amphibious ships and their embarked Marine forces can be used for launching and conducting humanitarianfor launching and conducting humanitarian --
assistance and disaster-response (HA/DR) operations; peacetime engagement and partnershipassistance and disaster-response (HA/DR) operations; peacetime engagement and partnership -building activities, such -building activities, such
as exercises; other nation-building operations, such asas exercises; other nation-building operations, such as reconstruction operations; operations to train, advise, and assist reconstruction operations; operations to train, advise, and assist
foreign military forces; peace-enforcement operations; noncombatant evacuation operations (NEOs); maritimeforeign military forces; peace-enforcement operations; noncombatant evacuation operations (NEOs); maritime -security -security
operations, such as anti-piracy operations; smaller-scale strike and counter-terrorism operations; and larger-scale operations, such as anti-piracy operations; smaller-scale strike and counter-terrorism operations; and larger-scale
groundground combat operations. Amphibious ships andcombat operations. Amphibious ships and their embarked Marine forces can also betheir embarked Marine forces can also be ~~used~~ used for maintaining for maintaining
forward-deployed naval presence for purposes of deterrence, reassurance, and forward-deployed naval presence for purposes of deterrence, reassurance, and ~~maintaining~~mainta ining regional stability. regional stability.
5 U.S. 5 U.S. Navy amphibious ships have designations starting with the letter L, as in amphibiousNavy amphibious ships have designations starting with the letter L, as in amphibious landing. LHA can be . LHA can be
translated as landing ship, helicopter-capable, assault; LHD can betranslated as landing ship, helicopter-capable, assault; LHD can be translated as landingtranslated as landing ship, helicoptership, helicopter -capable, well -capable, well
deck; LPD can be translated as landing ship, helicopter platform, well deck; and LSDdeck; LPD can be translated as landing ship, helicopter platform, well deck; and LSD can be translated as landingcan be translated as landing ship, ship,
wellwell deck. Whether noted in the designation or not, almost all these ships have welldeck. Whether noted in the designation or not, almost all these ships have well decks.decks. ~~The~~ T he exceptions are LHAs 6 exceptions are LHAs 6
and 7, whichand 7, which do not have well decksdo not have well decks and instead have expanded aviation support capabilities. For an explanation of and instead have expanded aviation support capabilities. For an explanation of
wellwell decks, seedecks, see ~~footnote 3.~~ ~~The terms “~~ footnote 3. T he terms “ large-deck” and “large-deck” and “ small-deck” refer to the size of the ship’s flight deck. small-deck” refer to the size of the ship’s flight deck.
6 CRS6 CRS Report R43543, Report R43543, Navy LPD-17 Flight II and LHA Amphibious Ship Programs: Background and Issues for
Congress, by Ronald, by Ronald O'Rourke. O'Rourke.
7 For more on the Navy’s 355-ship force-level goal, see CRS 7 For more on the Navy’s 355-ship force-level goal, see CRS Report RL32665, Report RL32665, Navy Force Structure and Shipbuilding
Plans: Background and Issues for Congress, by Ronald O'Rourke. For a more detailed review of the 38-ship force , by Ronald O'Rourke. For a more detailed review of the 38-ship force
structure requirements, see Appendix A of archived CRSstructure requirements, see Appendix A of archived CRS Report RL34476, Report RL34476, Navy LPD-17 ~~Amphibious Ship~~
~~Procurement~~Am phibious Ship Procurem ent: Background, Issues, and Options for Congress, by Ronald, by Ronald O'Rourke. O'Rourke.
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Navy Light Amphibious Warship (LAW) Program: Background and Issues for Congress

38-ship force-level goal predates the initiation of the LAW program and consequently includes no 38-ship force-level goal predates the initiation of the LAW program and consequently includes no
LAWs. LAWs.
The 38-ship force-level goal is intended to meet a wartime requirement for having enough The 38-ship force-level goal is intended to meet a wartime requirement for having enough
amphibious lift for transporting the assault echelons of two Marine Expeditionary Brigades amphibious lift for transporting the assault echelons of two Marine Expeditionary Brigades
(MEBs), a requirement known as the 2.0 MEB lift requirement. The 2.0 MEB lift requirement (MEBs), a requirement known as the 2.0 MEB lift requirement. The 2.0 MEB lift requirement
dates to 2006. The translation of this lift requirement into a Marine Corps-preferred force-level dates to 2006. The translation of this lift requirement into a Marine Corps-preferred force-level
goal of 38 ships dates to 2009, and the Navy’s formal incorporation of the 38-ship goal (rather goal of 38 ships dates to 2009, and the Navy’s formal incorporation of the 38-ship goal (rather
than a more than a more ~~fiscally~~fiscal y constrained goal of 33 or 34 ships) into the Navy’s constrained goal of 33 or 34 ships) into the Navy’s ~~overall~~ overal ship force-ship force-
structure goal dates to 2016.8 Navy and Marine Corps officials have testified in the past that fully structure goal dates to 2016.8 Navy and Marine Corps officials have testified in the past that fully
meeting U.S. regional combatant commander requests for day-to-day forward deployments of meeting U.S. regional combatant commander requests for day-to-day forward deployments of
amphibious ships (as opposed to wartime needs) would require a force of 50 or more amphibious amphibious ships (as opposed to wartime needs) would require a force of 50 or more amphibious
ships of the current large types.9 ships of the current large types.9
The 38-ship force-level goal is a target that the Navy wants to achieve and maintain in coming The 38-ship force-level goal is a target that the Navy wants to achieve and maintain in coming
years. Under the Navy’s FY2021 budget submission, the Navy projected that it would have 33 years. Under the Navy’s FY2021 budget submission, the Navy projected that it would have 33
amphibious ships at the end of FY2020, including 10 LHA/LHD-typeamphibious ships at the end of FY2020, including 10 LHA/LHD-type ships and 23 LSD/LPD-ships and 23 LSD/LPD-
type ships.10 type ships.10
Potential New Force-Level Goal
Overview
The Navy and DOD since 2019 have been working to develop a new force-level goal to replace 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. This new force-level goal is expected to introduce a the Navy’s current 355-ship force-level goal. This new force-level goal is expected to introduce a
once-in-a-generation change in fleet architecture, meaning basic the types of ships that make up once-in-a-generation 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 the 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 missions. 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 reflected in the 355-ship goal or previous Navy force-level goals. In particular, the new fleet
architecture is expected to feature architecture is 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);
 a larger proportion of  a larger proportion of ~~smaller~~smal er ships (such as frigates, corvettes, ships (such as frigates, corvettes, ~~smaller~~smal er
amphibious ships, amphibious ships, ~~smaller~~smal er resupply ships, and perhaps resupply ships, and perhaps ~~smaller~~smal er aircraft carriers); aircraft carriers);
and and
 a new third tier of surface vessels about as large as corvettes or large patrol craft  a new third tier of surface vessels about as large as corvettes or large patrol craft
that that ~~will~~ wil be either lightly manned, be either lightly manned, ~~optionally~~optional y manned, or unmanned, as manned, or unmanned, as ~~well~~ wel as as
large unmanned underwater vehicles (UUVs). large unmanned underwater vehicles (UUVs).

8 For additional discussion8 For additional discussion of the 2.0 MEB lift goal and earlier amphibiousof the 2.0 MEB lift goal and earlier amphibious lift goals dating back to 1980, see Appendix lift goals dating back to 1980, see Appendix
A of archived CRSA of archived CRS Report RL34476, Report RL34476, Navy LPD-17 ~~Amphibious Ship Procurement~~Am phibious Ship Procurem ent: Background, Issues, and Options
for Congress, by Ronald O'Rourke. , by Ronald O'Rourke.
9 For example, in testimony to the Seapower and Projection Forces subcommittee of the House Armed Services 9 For example, in testimony to the Seapower and Projection Forces subcommittee of the House Armed Services
Committee on February 25, 2015, Marine Corps Lieutenant General Kenneth J. Glueck,Committee on February 25, 2015, Marine Corps Lieutenant General Kenneth J. Glueck, Jr., Deputy Jr., Deputy ~~Commandant~~Comm andant for for
Combat Development and Integration and Commanding GeneralCombat Development and Integration and Commanding General of the Marine Corps Combat Development Command, of the Marine Corps Combat Development Command,
stated that the number needed to fully meet regional combatant commander demands for forward-deployedstated that the number needed to fully meet regional combatant commander demands for forward-deployed amphibious amphibious
ships is “close to 54.” (Source:ships is “close to 54.” (Source: Spoken testimony of Lieutenant General Glueck, as reflected in transcript of hearing.)Spoken testimony of Lieutenant General Glueck, as reflected in transcript of hearing.)
10 Department of the Navy, 10 Department of the Navy, Highlights of the Department of the Navy FY 2021 Budget, February 10, 2020, Figure 3-2 , February 10, 2020, Figure 3-2
on p. 3-2. on p. 3-2.
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Navy Light Amphibious Warship (LAW) Program: Background and Issues for Congress

Navy and DOD leaders believe that shifting to a more distributed fleet architecture is Navy and DOD leaders believe that shifting to a more distributed fleet architecture is
  operationally necessary, to respond effectively to the improving maritime anti-, to respond effectively to the improving maritime anti-
access/area-denial (A2/AD) capabilities of other countries, particularly China;11 access/area-denial (A2/AD) capabilities of other countries, particularly China;11
  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.
December 9, 2020, Shipbuilding Document
On December 9, 2020, the outgoing Trump Administration released a document that can be 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-viewed as its own vision for future Navy force structure and/or a draft version of the FY2022 30-
year Navy shipbuildingyear Navy shipbuilding plan. The document presents an envisioned Navy force-level goal for 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 achieving by 2045 a Navy with a more distributed fleet architecture, including 382 to 446 manned
ships and 143 to 242 large unmanned vehicles (UVs). Within the total of 382 to 446 manned ships and 143 to 242 large unmanned vehicles (UVs). Within the total of 382 to 446 manned
ships, the document ships, the document ~~calls~~cal s for an amphibious fleet of 61 to 67 amphibious ships, including 9 to 10 for an amphibious fleet of 61 to 67 amphibious ships, including 9 to 10
LHA/LHD-typeLHA/LHD-type ships and a combined total of 52 to 57 LPD-type ships and LAWs. (The ships and a combined total of 52 to 57 LPD-type ships and LAWs. (The
document did not break down the figure of 52 to 57 ships into separate figures for LPD-type ships document did not break down the figure of 52 to 57 ships into separate figures for LPD-type ships
and LAWs.) In establishing its force-level goals and shipbuildingand LAWs.) In establishing its force-level goals and shipbuilding plans for the Navy, the Biden plans for the Navy, the Biden
Administration can choose to adopt, revise, or set aside this document. Administration can choose to adopt, revise, or set aside this document.
Operational Rationale
To improve their ability to perform various missions in coming years, including a potential To improve their ability to perform various missions in coming years, including a potential
mission of countering Chinese forces in a possible conflict in the Western Pacific, the Navy and mission of countering Chinese forces in a possible conflict in the Western Pacific, the Navy and
Marine Corps want to implement a new operational concept Marine Corps want to implement a new operational concept ~~called~~cal ed Distributed Maritime Distributed Maritime
Operations (DMO).12 DMO Operations (DMO).12 DMO ~~calls~~cal s for U.S. naval forces (meaning the Navy and Marine Corps)13 to for U.S. naval forces (meaning the Navy and Marine Corps)13 to

~~11 See,~~ 11 See, for example, David B. Larter, “With China Gunning for Aircraft Carriers, USfor example, David B. Larter, “With China Gunning for Aircraft Carriers, US Navy SaysNavy Says It Must Change HowIt Must Change How It It
Fights,” Fights,” Defense News,, December 6, 2019; Arthur H. Barber, “RedesignDecember 6, 2019; Arthur H. Barber, “Redesign the Fleet,” the Fleet,” U.S. Naval Institute Proceedings, ,
January 2019. Some observers have long urgedJanuary 2019. Some observers have long urged the Navy to the Navy to ~~shift~~shif t to a more distributed fleet architecture, on the grounds 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 that the Navy’s current architecture—which concentrates much of the fleet’s capability into a relatively limited number
of individuallyof individually larger and more expensive surface ships—islarger and more expensive surface ships—is increasingly vulnerable to attack by the improving A2/AD increasingly vulnerable to attack by the improving A2/AD
capabilities (particularly anti-ship missiles and their supporting detection and targeting systems) of potential capabilities (particularly anti-ship missiles and their supporting detection and targeting systems) of potential
adversaries, particularly China. Shifting to a more distributedadversaries, particularly China. Shifting to a more distributed architecture, these observers have architecture, these observers have ~~argued,~~ argue d, would would
• •
complicate an adversary’s targeting challenge by presenting the adversary with a larger number complicate an adversary’s targeting challenge by presenting the adversary with a larger number of Navy units of Navy units
to detect, identify, and track; to detect, identify, and track;
• •
reduce reduce the loss in aggregatethe loss in aggregate Navy capability that wouldNavy capability that would result from the destruction of an individualresult from the destruction of an individual ~~Navy~~ N avy
platform; platform;
• •
give U.S. give U.S. ~~leaders~~ leaders the option of deploying USVsthe option of deploying USVs ~~and UUVs~~ and UUVs in wartime to sea locations that would be in wartime to sea locations that would be
tactically advantageous but too risky for manned ships; and tactically advantageous but too risky for manned ships; and
• •
increase the modularity and reconfigurability of the fleet for adapting to changing mission needs. increase the modularity and reconfigurability of the fleet for adapting to changing mission needs.
For more on China’s maritime A2/AD capabilities, see For more on China’s maritime A2/AD capabilities, see ~~CRS~~ CRS Report RL33153, Report RL33153, China Naval Modernization:
~~Implications~~Im plications for U.S. Navy Capabilities—Background and Issues for Congress, by Ronald O'Rourke. , by Ronald O'Rourke.
12 For additional discussion, 12 For additional discussion, see CRSsee CRS Report RL32665, Report RL32665, Navy Force Structure and Shipbuilding Plans: Background and
Issues for Congress, by Ronald, by Ronald O'Rourke, and CRSO'Rourke, and CRS Report RL33153, Report RL33153, China Naval Modernization: ~~Implications~~Im plications for
U.S. Navy Capabilities—Background and Issues for Congress, by Ronald O'Rourke. , by Ronald O'Rourke.
13 Although the term 13 Although the term naval is often used is often used to refer specifically to the Navy, it more properly refers to both the Navy and to refer specifically to the Navy, it more properly refers to both the Navy and
Marine Corps, becauseMarine Corps, because both the Navy and Marine Corps are naval services. Even though the Marine Corps sometimes both the Navy and Marine Corps are naval services. Even though the Marine Corps sometimes
operates for extended periods as a land fighting force (as it has done in recent years, for example, in Afghanistan operates for extended periods as a land fighting force (as it has done in recent years, for example, in Afghanistan ~~and~~a nd
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Navy Light Amphibious Warship (LAW) Program: Background and Issues for Congress

operate at sea in a less concentrated, more distributed manner, so as to complicate an adversary’s operate at sea in a less concentrated, more distributed manner, so as to complicate an adversary’s
task of detecting, identifying, tracking, and targeting U.S. naval forces, while task of detecting, identifying, tracking, and targeting U.S. naval forces, while ~~still~~ stil being able to being able to
bring lethal force to bear against adversary forces. To support the implementation of DMO, the bring lethal force to bear against adversary forces. To support the implementation of DMO, the
Navy wants to shift to the new and more distributed fleet architecture outlined above. Navy wants to shift to the new and more distributed fleet architecture outlined above.
In In ~~parallel~~ paral el with DMO, and with an eye toward potential conflict scenarios in the Western Pacific with DMO, and with an eye toward potential conflict scenarios in the Western Pacific
against Chinese forces, the Marine Corps has developed two supporting operational concepts, against Chinese forces, the Marine Corps has developed two supporting operational concepts,
~~called~~cal ed Littoral Operations in a Contested Environment (LOCE) and Expeditionary Advanced Littoral Operations in a Contested Environment (LOCE) and Expeditionary Advanced
Base Operations (EABO). Under the EABOBase Operations (EABO). Under the EABO concept, the Marine Corps envisions, among other concept, the Marine Corps envisions, among other
things, having reinforced-platoon-sized Marine Corps units maneuver around the theater, moving things, having reinforced-platoon-sized Marine Corps units maneuver around the theater, moving
from island to island, to fire anti-ship cruise missiles (ASCMs) and perform other missions so as from island to island, to fire anti-ship cruise missiles (ASCMs) and perform other missions so as
to contribute, alongside Navy and other U.S. military forces, to U.S. operations to counter and to contribute, alongside Navy and other U.S. military forces, to U.S. operations to counter and
deny sea control to Chinese forces. deny sea control to Chinese forces.
More More ~~specifically~~specifical y, the Marine Corps states that the EABO concept includes, among other things, , the Marine Corps states that the EABO concept includes, among other things,
establishing and operating “multiple platoon-reinforced-size expeditionary advance base sites that establishing and operating “multiple platoon-reinforced-size expeditionary advance base sites that
can host and enable a variety of missions such as long-range anti-ship fires, forward arming and can host and enable a variety of missions such as long-range anti-ship fires, forward arming and
refueling of aircraft, refueling of aircraft, ~~intelligence, surveillance~~intel igence, surveil ance, and reconnaissance of key maritime terrain, and , and reconnaissance of key maritime terrain, and
air-defense and early warning,”14 The use of Marine Corps units to contribute to U.S. sea-denial air-defense and early warning,”14 The use of Marine Corps units to contribute to U.S. sea-denial
operations against an opposing navy by shooting ASCMs would represent a new mission for the operations against an opposing navy by shooting ASCMs would represent a new mission for the
Marine Corps.15 Marine Corps.15
The LAW ships would be instrumental to these operations, with LAWs embarking, transporting, The LAW ships would be instrumental to these operations, with LAWs embarking, transporting,
landing, and subsequently reembarking these landing, and subsequently reembarking these ~~small~~ smal Marine Corps units. An August 27, 2020, Marine Corps units. An August 27, 2020,
press report states, “Maj. Gen. Tracy King, the director of expeditionary warfare on the chief of press report states, “Maj. Gen. Tracy King, the director of expeditionary warfare on the chief of
naval operations’ staff (OPNAV N95), said today that LAW was perhaps the most important naval operations’ staff (OPNAV N95), said today that LAW was perhaps the most important
investment the Marine Corps was making to optimize itself for expeditionary advance base investment the Marine Corps was making to optimize itself for expeditionary advance base
operations (EABO).”16 The December 9, 2020, shipbuilding document submitted by the outgoing operations (EABO).”16 The December 9, 2020, shipbuilding document submitted by the outgoing
Trump Administration stated that the Marine Corps Trump Administration stated that the Marine Corps
is reducing a number of legacy systems to reinvest in development of more NDS [National is reducing a number of legacy systems to reinvest in development of more NDS [National
DefenseDefense Strategy]-relevant capabilitiesStrategy]-relevant capabilities ~~such as Marine~~ such as Marine Littoral RegimentsLittoral Regiments (MLRs),(MLRs), as as
outlined in the Commandant’s Planning Guidance and Force Design. The FNFSoutlined in the Commandant’s Planning Guidance and Force Design. The FNFS ~~[Future~~
~~Naval Force Study] highlights the important contributions MLRs provide to Sea Denial~~
~~and Sea Control missions. This approach requires a new mix of amphibious warships~~

~~Iraq), and~~ [Future Naval Force Study] highlights the important contributions MLRs provide to Sea Denial and Sea Control missions. This approach requires a new mix of amphibious warships Iraq), and is often thought of as the country’s second land army, it nevertheless is, by law,is often thought of as the country’s second land army, it nevertheless is, by law, a naval service. 10 U.S.C. a naval service. 10 U.S.C.
§8001(a)(3) states, “§8001(a)(3) states, “ The term ‘member of the naval service’ means a person appointed or enlisted in, or inducted or The term ‘member of the naval service’ means a person appointed or enlisted in, or inducted or
conscripted into, the Navy or the Marine Corps.” DON officials sometimes refer to the two services as the Navyconscripted into, the Navy or the Marine Corps.” DON officials sometimes refer to the two services as the Navy --
Marine Corps team. For additional discussion,Marine Corps team. For additional discussion, see CRSsee CRS In Focus IF10484, In Focus IF10484, Defense ~~Primer: Department~~Prim er: Departm ent of the Navy, ,
by Ronald O'Rourke. by Ronald O'Rourke.
14 Emailed statement from Marine Corps as quoted in Shawn 14 Emailed statement from Marine Corps as quoted in Shawn Snow,Snow, “ “New Marine Littoral Regiment, Designed to Fight New Marine Littoral Regiment, Designed to Fight
in Contested Maritime Environment, Coming to Hawaii,” in Contested Maritime Environment, Coming to Hawaii,” Marine ~~Times~~Tim es, May 14, 2020. , May 14, 2020.
15 For press articles discussing15 For press articles discussing these envisioned operations, see, for example, Megan Eckstein, “these envisioned operations, see, for example, Megan Eckstein, “ CMC Berger Outlines CMC Berger Outlines
HowHow Marines CouldMarines Could Fight SubmarinesFight Submarines in the Future,” in the Future,” USNI News,, December 8, 2020; David Axe, “December 8, 2020; David Axe, “ Meet Your New Meet Your New
Island-Hopping, Missile-SlingingIsland-Hopping, Missile-Slinging U.S.U.S. Marine Corps,” Marine Corps,” Forbes, May 14, 2020; Shawn Snow,, May 14, 2020; Shawn Snow, “ “New Marine Littoral New Marine Littoral
Regiment, DesignedRegiment, Designed to Fight in Contested Maritime Environment, Coming to Hawaii,” to Fight in Contested Maritime Environment, Coming to Hawaii,” Marine ~~Times~~Tim es, May 14, 2020; , May 14, 2020;
William Cole (Honolulu Star-Advertiser), “William Cole (Honolulu Star-Advertiser), “~~The~~ T he Marine Corps Is Forming a First-of-its-Kind Regiment in Hawaii,” Marine Corps Is Forming a First-of-its-Kind Regiment in Hawaii,”
Military.com , May 12, 2020; Joseph , May 12, 2020; Joseph ~~Trevithick, “~~T revithick, “ Marines Marines ToT o Radically Remodel Force, Cutting Radically Remodel Force, Cutting ~~Tanks~~T anks, Howitzers In , Howitzers In
Favor Of Drones, Missiles,”Favor Of Drones, Missiles,” The Drive, March 23, 2020; Chris “Ox” Harmer, “, March 23, 2020; Chris “Ox” Harmer, “ Marine Boss’s AudaciousMarine Boss’s Audacious ~~Plan To~~
~~Transform The~~ Plan T o T ransform T he Corps By Giving Up Big Corps By Giving Up Big Amphibious Ships,”Amphibious Ships,” The Drive, September 5, 2019. , September 5, 2019.
16 Megan Eckstein, “ 16 Megan Eckstein, “ Marines Already In Industry StudiesMarines Already In Industry Studies for Light Amphibiousfor Light Amphibious Warship, In BidWarship, In Bid to Field to Field ~~Them~~T hem
ASAP,” ASAP,” USNI News,, ~~August~~ August 27 (updated August27 (updated August 28), 2020. See also28), 2020. See also Paul McLeary, “Paul McLeary, “ ‘If It Floats, It Fights:’ Navy’s ‘If It Floats, It Fights:’ Navy’s
NewNew ~~Small Ship~~ Small Ship Strategy,” Strategy,” Breaking Defense, August, August 28, 2020. 28, 2020.
Congressional Research Service Congressional Research Service
5 5

link to page 28 link to page 28 Navy Light Amphibious Warship (LAW) Program: Background and Issues for Congress

including the Light Amphibious Warship (LAW), which is critical to MLR mobility and including the Light Amphibious Warship (LAW), which is critical to MLR mobility and
sustainability.sustainability. ~~The overall number of amphibious warships grows to support the~~ The overall number of amphibious warships grows to support the more distributed expeditionary force design, with an increased number of LAW complementing fewer legacy amphibious warships.17 A February 2021 Marine Corps tentative manual on EABO states: Littoral maneuver will rely heavily on surface platforms such as the light amphibious warship (LAW) and a range of surface connectors, as well as aviation assets. The LAW is envisioned as the principal littoral maneuver vessel of the littoral force.… The LAW supports the day-to-day maneuver of stand-in forces operating in the LOA [littoral operations area]. It complements L-class amphibious ships18 and other surface connectors. Utilizing the LAW to transport forces of the surface reduces the impacts of tactical vehicles on the road network, increases deception, and allows for the sustainment of forces during embarkation. The range, endurance, and austere access of LAWs enable the littoral force to deliver personnel, equipment, and sustainment across a widely distributed area. Shallow draft and beaching capability are keys to providing the volume and agility to maneuver the required capabilities to key maritime terrain. LAW employment requires reconnaissance and prior planning relating to the bathymetry of the littoral environment. Effective LAW employment relies on knowledge of the beach makeup, slope, currents, tidal effects, and other environment factors. As envisioned and when properly postured, LAWs possess the range, endurance, speed, sea-keeping, and C4ISR capabilities to support and conduct complementary operations with, but not as part of, US Navy tactical groups, including an expeditionary strike group (ESG) or amphibious ready group (ARG). Forward-positioned LAWs may augment the capabilities of deploying ARG/MEUs during regional engagement and response to crises or contingencies. The LAW with embarked forces, generates and/or enables the following effects:  Rapidly maneuver forces from shore-to-shore in a contested environment  Sustain a combat-credible force ashore  Conduct enduring operations  Enable persistent joint-force operations and power projection  Provide increased and capable forward presence19 ~~more~~
~~distributed expeditionary force design, with an increased number of LAW complementing~~
~~fewer legacy amphibious warships.17~~
The survivability of the LAW ships would come from their ability to hide among islands and The survivability of the LAW ships would come from their ability to hide among islands and
other sea traffic, from defensive support they would receive from other U.S. Navy forces, and other sea traffic, from defensive support they would receive from other U.S. Navy forces, and
from the ability of their associated Marine Corps units to fire missiles at Chinese ships and from the ability of their associated Marine Corps units to fire missiles at Chinese ships and
aircraft that could attack them with their own missiles (which can be viewed as an application of aircraft that could attack them with their own missiles (which can be viewed as an application of
the notion that the best defense is a good offense). the notion that the best defense is a good offense).
For For excerpts from the Commandant’s Planning Guidance ~~that further discuss~~additional background information on the proposed the proposed
change in the amphibious-ship force change in the amphibious-ship force architecture and the EABO-relatedarchitecture and the EABO-related operational rationale operational rationale
behind it, see behind it, see ~~the~~the Appendix.
~~Light Amphibious Warship (LAW) Program18~~ 17 U.S. Navy, Report to Congress on the Annual Long-Range Plan for Construction of Naval Vessels, December 9, 2020, p. 11. 18 T he term L-class amphibious ships refers to the Navy’s LHA/LHD- and LPD-type amphibious ships, whose designation begins with the letter L in reference to amphibious landing. 19 Department of the Navy, Headquarters, United States Marine Corps, Tentative Manual for Expeditionary Advanced Base Operations, February 2021, pp. 7-9 to 7-10. Congressional Research Service 6 Navy Light Amphibious Warship (LAW) Program: Background and Issues for Congress Light Amphibious Warship (LAW) Program20
Overview
The LAW program envisions procuring a class of 28 to 30 new ships that would be much The LAW program envisions procuring a class of 28 to 30 new ships that would be much ~~smaller~~
~~and individually~~ smal er and individual y much less expensive to procure and operate than the Navy’s current amphibious much less expensive to procure and operate than the Navy’s current amphibious
ships. The Navy envisions the first LAW being procured in FY2022. The Navy’s proposed ships. The Navy envisions the first LAW being procured in FY2022. The Navy’s proposed
FY2021 budget requested $30 FY2021 budget requested $30 ~~million~~mil ion in research and development funding for initial industry in research and development funding for initial industry
studies and concept design work on the ship. As part of its action on the Navy’s proposed FY2021 studies and concept design work on the ship. As part of its action on the Navy’s proposed FY2021
budget, Congress provided $24.0 budget, Congress provided $24.0 ~~million~~mil ion in research and development funding for the program. in research and development funding for the program.
Ship Design
The Navy wants LAWs to be a relatively simple and relatively The Navy wants LAWs to be a relatively simple and relatively inexpensive ships with the inexpensive ships with the
following features, among others: following features, among others:
 a length of 200 feet to 400 feet;  a length of 200 feet to 400 feet;1921
 a maximum draft of 12 feet;  a maximum draft of 12 feet;
 a displacement of up to 4,000 tons; a displacement of up to 4,000 tons;20

~~17 U.S. Navy, Report to Congress on the Annual Long-Range Plan for Construction of Naval Vessels, December 9,~~
~~2020, p. 11.~~
1822  a ship’s crew of no more than 40 Navy sailors;23  an ability to embark at least 75 Marines;  4,000 to 8,000 square feet of cargo area for the Marines’ weapons, equipment, and supplies;24 20 Unless otherwise stated, information in this section about the LAW is taken from Navy briefing slides Unless otherwise stated, information in this section about the LAW is taken from Navy briefing slides and Navy and Navy
answersanswers to industry questionsto industry questions from LAW program industry daysfrom LAW program industry days that were held on that were held on ~~March~~Ma rch 4 and April 9, 2020, and 4 and April 9, 2020, and
posted on March 20, May 5, and May 7, 2020, at “posted on March 20, May 5, and May 7, 2020, at “ RFI: US Navy Light Amphibious Warship (LAW),” RFI: US Navy Light Amphibious Warship (LAW),”
https://beta.sam.gov/opp/90a9ece86ade48089e9f6d57d2969d23/view, accessed by CRShttps://beta.sam.gov/opp/90a9ece86ade48089e9f6d57d2969d23/view, accessed by CRS on May 15, 2020. on May 15, 2020.
For press articles about the LAW, see Megan Eckstein, “ For press articles about the LAW, see Megan Eckstein, “ Navy Researching NewNavy Researching New ~~Class~~ Class of Mediumof Medium Amphibious Ship, Amphibious Ship,
NewNew Logistics Ships,”Logistics Ships,” USNI News,, February 20, 2020. See also Rich Abott, “February 20, 2020. See also Rich Abott, “ FY 2021 Request Starts WorkFY 2021 Request Starts Work on Future on Future
Amphibs and Logistics Ships,”Amphibs and Logistics Ships,” Defense Daily, February, February 20, 2020; David Axe, “20, 2020; David Axe, “~~This~~T his Weird Little Ship Could Weird Little Ship Could Be the Be the
Future of AmphibiousFuture of Amphibious Warfare,” Warfare,” National Interest, February, February 24, 2020; Mallory Shellbourne, “24, 2020; Mallory Shellbourne, “ Navy beginsNavy begins pursuit of pursuit of
Light AmphibiousLight Amphibious Warship,” Warship,” Inside Defense, March 26, 2020; Joseph , March 26, 2020; Joseph ~~Trevithick, “~~T revithick, “ Navy Wants Navy Wants ToT o Buy 30 New Buy 30 New Light Light
Amphibious Warships Amphibious Warships ToT o Support Radical Support Radical Shift In Marine Ops,” Shift In Marine Ops,” The Drive,, May 5, 2020; Megan Eckstein, “May 5, 2020; Megan Eckstein, “ Navy Navy
Officials Reveal Details of NewOfficials Reveal Details of New $100M Light Amphibious $100M Light Amphibious ~~Warship~~War ship Concept Concept ,” ,” USNI News,, November 19, 2020. November 19, 2020.
1921 Megan Eckstein, “ Megan Eckstein, “ Navy Officials Reveal Details of NewNavy Officials Reveal Details of New $100M Light Amphibious Warship Concept$100M Light Amphibious Warship Concept ,” ,” USNI News, ,
November 19, 2020. November 19, 2020.
2022 Megan Eckstein, “ Megan Eckstein, “ Navy Officials Reveal Details of NewNavy Officials Reveal Details of New $100M Light Amphibious Warship Concept,” $100M Light Amphibious Warship Concept,” USNI News, ,
November 19, 2020. November 19, 2020.
~~Congressional Research Service~~
6

~~Navy Light Amphibious Warship (LAW) Program: Background and Issues for Congress~~

~~ a ship’s crew of no more than 40 Navy sailors;21~~
~~ an ability to embark at least 75 Marines;~~
~~ 4,000 to 8,000 square feet of cargo area for the Marines’ weapons, equipment,~~
~~and supplies;22~~23 A draft circular of requirements (CoR) attached to a request for information (RFI) on the Law program that Navy released on October 16, 2020, states that “ The ship shall be capable of at least 11 day missions without replenishment for 40 crew and 50 embarked personnel.” (“ Light Amphibious Warship (LAW) Circular of Requirements (CoR), Draft for Preliminary Design RFI, Ver 0.12, 10-13-20, PDF page 6 of 19, attachment to “ RFI: DRAFT US Navy Light Amphibious Warship Preliminary Design/Contract Design Statement of Work,” Beta.sam.gov, accessed November 23, 2020, at https://beta.sam.gov/opp/c1c8a3900504442fa5ad3bac48cec001/view?index=opp.) 24 Megan Eckstein, “ Navy Officials Reveal Details of New $100M Light Amphibious Warship Concept ,” USNI News, November 19, 2020. A draft circular of requirements (CoR) attached to a request for information (RFI) on the Law program that Navy released on October 16, 2020, states that the “ ship shall have a cargo deck capable of carrying 648 ST [short tons] and a minimum deck area of 8000” square feet. (“ Light Amphibious Warship (LAW) Circular of Requirements (CoR), Draft for Preliminary Design RFI, Ver 0.12, 10-13-20, PDF page 5 of 19, attachment to “ RFI: DRAFT US Navy Light Amphibious Warship Preliminary Design/Contract Design Statement of Work ,” Beta.sam.gov, Congressional Research Service 7 link to page 6 Navy Light Amphibious Warship (LAW) Program: Background and Issues for Congress
 a stern or bow landing ramp for moving the Marines and their weapons,  a stern or bow landing ramp for moving the Marines and their weapons,
equipment, and supplies the ship to shore (and vice versa) across a beach; equipment, and supplies the ship to shore (and vice versa) across a beach;
 a modest suite of C4I equipment;  a modest suite of C4I equipment;2325
 a 25mm or 30mm gun system and .50 caliber machine guns for self-defense;  a 25mm or 30mm gun system and .50 caliber machine guns for self-defense;
 a transit speed of at least 14 knots, and preferably 15 knots; a transit speed of at least 14 knots, and preferably 15 knots;2426
 a minimum unrefueled transit range of 3,500 nautical miles; a minimum unrefueled transit range of 3,500 nautical miles;2527
 a “Tier 2+” plus level of survivability (i.e., ruggedness for withstanding battle  a “Tier 2+” plus level of survivability (i.e., ruggedness for withstanding battle
damage)—a level, broadly comparable to that of a damage)—a level, broadly comparable to that of a ~~smaller~~smal er U.S. Navy surface U.S. Navy surface
combatant (i.e., a corvette or frigate), that would permit the ship to absorb a hit combatant (i.e., a corvette or frigate), that would permit the ship to absorb a hit
from an enemy weapon and keep the crew safe until they and their equipment from an enemy weapon and keep the crew safe until they and their equipment
and supplies can be transferred to another LAW;and supplies can be transferred to another LAW;2628
 an ability  an ability to operate within fleet groups or deploy independently; and to operate within fleet groups or deploy independently; and
 a 20-year expected service life. a 20-year expected service life.27

~~21 A draft circular of requirements (CoR) attached to a request for information (RFI) on the Law program that Navy~~
~~released on October 16, 2020, states that “The ship shall be capable of at least 11 day missions without replenishment~~
~~for 40 crew and 50 embarked personnel.” (“Light Amphibious Warship (LAW) Circular of Requirements (CoR), Draft~~
~~for Preliminary Design RFI, Ver 0.12, 10-13-20, PDF page 6 of 19, attachment to “RFI: DRAFT US Navy Light~~
~~Amphibious Warship Preliminary Design/Contract Design Statement of Work,” Beta.sam.gov, accessed November 23,~~
~~2020, at https://beta.sam.gov/opp/c1c8a3900504442fa5ad3bac48cec001/view?index=opp.)~~
~~22 Megan Eckstein, “Navy Officials Reveal Details of New $100M Light Amphibious Warship Concept,” USNI News,~~
~~November 19, 2020. A draft circular of requirements (CoR) attached to a request for information (RFI) on the Law~~
~~program that Navy released on October 16, 2020, states that the “ship shall have a cargo deck capable of carrying 648~~
~~ST [short tons] and a minimum deck area of 8000” square feet. (“Light Amphibious Warship (LAW) Circular of~~
~~Requirements (CoR), Draft for Preliminary Design RFI, Ver 0.12, 10-13-20, PDF page 5 of 19, attachment to “RFI:~~
~~DRAFT US Navy Light Amphibious Warship Preliminary Design/Contract Design Statement of Work,” Beta.sam.gov,~~
~~accessed November 23, 2020, at https://beta.sam.gov/opp/c1c8a3900504442fa5ad3bac48cec001/view?index=opp.)~~
~~23 C4I is command and control, communications, computers, and intelligence.~~
~~24 Megan Eckstein, “Navy Officials Reveal Details of New $100M Light Amphibious Warship Concept~~29 In addition to the above points, the Navy states that the LAW’s design can be based on a commercial-ship design. A ship fitting the requirements listed above would be only a fraction as large as the Navy’s current amphibious ships—the Navy’s LHA/LHD-type ships are 844 to 855 feet long and have a full load displacements between 40,000 and 45,000 tons, while its and LPD-17 class ships are 684 feet long and have a full load displacement of 24,900 tons. The LAW’s maximum draft of 12 feet is intended to permit the ship to transit shal ow waters on its way to and from landing beaches. The Navy prefers that the ship’s cargo space be in the form of open deck storage. Unlike most of the Navy’s current amphibious ships, the LAW would not have a wel deck.30 A transit speed of about 15 knots would be less than the approximate 22-knot maximum sustained speed of larger U.S. Navy amphibious ships, but it is a relatively fuel- accessed November 23, 2020, at https://beta.sam.gov/opp/c1c8a3900504442fa5ad3bac48cec001/view?index=opp.) 25 C4I is command and control, communications, computers, and intelligence. 26 Megan Eckstein, “ Navy Officials Reveal Details of New $100M Light Amphibious Warship Concept ,” ,” USNI News, ,
November 19, 2020. A draft circular of requirements (CoR) attached to a request for information (RFI) on the Law November 19, 2020. A draft circular of requirements (CoR) attached to a request for information (RFI) on the Law
program that Navy released on October 16, 2020, states that the “program that Navy released on October 16, 2020, states that the “ ship shall be capable of a minimum transit speed of ship shall be capable of a minimum transit speed of
14 knots in Sea14 knots in Sea State three (SS3)State three (SS3) at the shipat the ship ’s full’s full load condition….” (“load condition….” (“ Light Amphibious Warship (LAW) CircularLight Amphibious Warship (LAW) Circular of of
Requirements (CoR), Draft for Preliminary Design RFI, VerRequirements (CoR), Draft for Preliminary Design RFI, Ver 0.12, 100.12, 10 -13-20, PDF page 6 of 19, attachment to “-13-20, PDF page 6 of 19, attachment to “ RFI: RFI:
DRAFTDRAFT US US Navy Light AmphibiousNavy Light Amphibious Warship Preliminary Design/Contract Design Statement of Work,” Beta.sam.gov, Warship Preliminary Design/Contract Design Statement of Work,” Beta.sam.gov,
accessedaccessed November 23, 2020, at https://beta.sam.gov/opp/c1c8a3900504442fa5ad3bac48cec001/view?index=opp.) November 23, 2020, at https://beta.sam.gov/opp/c1c8a3900504442fa5ad3bac48cec001/view?index=opp.)
2527 Megan Eckstein, “ Megan Eckstein, “ Navy Officials Reveal Details of NewNavy Officials Reveal Details of New $100M Light Amphibious Warship Concept$100M Light Amphibious Warship Concept ,” ,” USNI News, ,
November 19, 2020. A draft circular of requirements (CoR) attached to a request for information (RFI) on November 19, 2020. A draft circular of requirements (CoR) attached to a request for information (RFI) on ~~the~~th e Law Law
program that Navy released on October 16, 2020, states that program that Navy released on October 16, 2020, states that ~~The~~T he ship shall be capable ship shall be capable of 3500 nautical miles endurance of 3500 nautical miles endurance
at 14 knots without refueling at the ship’s full loadat 14 knots without refueling at the ship’s full load condition….” (“condition….” (“ Light Amphibious Warship (LAW) CircularLight Amphibious Warship (LAW) Circular of of
Requirements (CoR), Draft for Preliminary Design RFI, VerRequirements (CoR), Draft for Preliminary Design RFI, Ver 0.12, 100.12, 10 -13-20, PDF page 6 of 19, attachment to “-13-20, PDF page 6 of 19, attachment to “ RFI: RFI:
DRAFTDRAFT US US Navy Light AmphibiousNavy Light Amphibious Warship Preliminary Design/Contract Design Statement of Work,” Beta.Warship Preliminary Design/Contract Design Statement of Work,” Beta. sam.gov, sam.gov,
accessedaccessed November 23, 2020, at https://beta.sam.gov/opp/c1c8a3900504442fa5ad3bac48cec001/view?index=opp.) November 23, 2020, at https://beta.sam.gov/opp/c1c8a3900504442fa5ad3bac48cec001/view?index=opp.)
2628 Megan Eckstein, “ Megan Eckstein, “ Navy Officials Reveal Details of NewNavy Officials Reveal Details of New $100M Light Amphibious Warship Concept$100M Light Amphibious Warship Concept ,” ,” USNI News, ,
November 19, 2020. November 19, 2020.
2729 Megan Eckstein, “ Megan Eckstein, “ Navy Officials Reveal Details of NewNavy Officials Reveal Details of New $100M Light Amphibious Warship Concept$100M Light Amphibious Warship Concept ,” USNI News, November 19, 2020. 30 As noted in footnote 3, a well deck is a large, covered, garage-like space in the stern of the ship. It can be flooded with water so that landing craft can leave or return to the ship. Access to the well deck is protected by a large stern gate that is somewhat like a garage door. Congressional Research Service 8 link to page 13 link to page 14 link to page 14 link to page 15 link to page 15 Navy Light Amphibious Warship (LAW) Program: Background and Issues for Congress efficient speed for moving ships through water,31~~,” USNI News,~~
~~November 19, 2020.~~
~~Congressional Research Service~~
7

~~link to page 13 link to page 13 link to page 14 link to page 14 link to page 15 link to page 6~~ ~~Navy Light Amphibious Warship (LAW) Program: Background and Issues for Congress~~

~~In addition to the above points, the Navy states that the LAW’s design can be based on a~~
~~commercial-ship design.~~
~~A ship fitting the requirements listed above would be only a fraction as large as the Navy’s~~
~~current amphibious ships—the Navy’s LHA/LHD-type ships are 844 to 855 feet long and have a~~
~~full load displacements between 40,000 and 45,000 tons, while its and LPD-17 class ships are 684~~
~~feet long and have a full load displacement of 24,900 tons.~~
~~The LAW’s maximum draft of 12 feet is intended to permit the ship to transit shallow waters on~~
~~its way to and from landing beaches. The Navy prefers that the ship’s cargo space be in the form~~
~~of open deck storage. Unlike most of the Navy’s current amphibious ships, the LAW would not~~
~~have a well deck.28 A transit speed of about 15 knots would be less than the approximate 22-knot~~
~~maximum sustained speed of larger U.S. Navy amphibious ships, but it is a relatively fuel-~~
~~efficient speed for moving ships through water,29~~ which would permit the ship to be equipped which would permit the ship to be equipped
with a less powerful and consequently less expensive propulsion plant. The 20-year expected with a less powerful and consequently less expensive propulsion plant. The 20-year expected
service life is less than the 30- to 45-year expected service lives of larger U.S. Navy amphibious service life is less than the 30- to 45-year expected service lives of larger U.S. Navy amphibious
ships—a difference that could reduce the LAW’s construction cost for a ship of its type and ships—a difference that could reduce the LAW’s construction cost for a ship of its type and
size—and closer to the 25-year expected service life of the Navy’s Littoral Combat Ships size—and closer to the 25-year expected service life of the Navy’s Littoral Combat Ships
(LCSs).(LCSs).3032
Figure 1, Figure 2, Figure 3, Figure 4, ~~and~~and Figure 5 show published artist’s renderings of one show published artist’s renderings of one
firm’s notional design for a LAW-likefirm’s notional design for a LAW-like ship. The notional design shown has a length of about 70 ship. The notional design shown has a length of about 70
meters (i.e., about 230 feet), a draft of less than 12 feet, and 600 square meters (i.e., about 6,458 meters (i.e., about 230 feet), a draft of less than 12 feet, and 600 square meters (i.e., about 6,458
square feet) of deck space.square feet) of deck space.3133 The Navy’s eventual preferred design for the LAW might or might The Navy’s eventual preferred design for the LAW might or might
not look like this design. Figure 1. Notional Design for a LAW-Like Ship Artist’s rendering Source: Il ustration accompanying Megan Eckstein, “Navy Researching New Class of Medium Amphibious Ship, New Logistics Ships,” USNI News, February 20, 2020. The article credits the image to Sea Transport Solutions, a naval architecture, consulting, surveying, and project-management firm. 31~~not look like this design.~~
~~Procurement Schedule~~
~~The Navy envisions the first LAW being procured in FY2022. LAWs did not appear in the~~
~~Navy’s FY2021 five-year (FY2021-FY2025) shipbuilding plan, but they could appear in the~~
~~Navy’s FY2022 five-year (FY2022-FY2026) shipbuilding plan, which the Navy is to submit to~~
~~Congress as part of its FY2022 budget submission. The December 9, 2020, shipbuilding~~
~~document submitted by the outgoing Trump Administration shows the first 10 LAWs being~~
~~scheduled for procurement in FY2022-FY2026 in annual quantities of 1-1-2-3-3.~~

~~28 As noted in footnote 3, a well deck is a large, covered, garage-like space in the stern of the ship. It can be flooded~~
~~with water so that landing craft can leave or return to the ship. Access to the well deck is protected by a large stern gate~~
~~that is somewhat like a garage door.~~
29 Due to the density of water, fuel consumption for moving monohull ships through the water tends to increase steeply Due to the density of water, fuel consumption for moving monohull ships through the water tends to increase steeply
for speedsfor speeds above 14 to 16 knots. above 14 to 16 knots.
3032 For more on the LCS For more on the LCS program, see CRSprogram, see CRS Report RL33741, Report RL33741, Navy Littoral Combat Ship (LCS) Program: Background
and Issues for Congress, by Ronald O'Rourke. , by Ronald O'Rourke.
3133 Source: Source: “ “Stern Landing VesselStern Landing Vessel (SLV)(SLV) vs Conventional Landing Craftvs Conventional Landing Craft ” (video), posted on ” (video), posted on ~~YouTube~~YouT ube January 10, January 10,
2018, by Sea2018, by Sea ~~Transport~~ T ransport Solutions, a naval architecture, consulting, surveying, and project Solutions, a naval architecture, consulting, surveying, and project -management firm, and -management firm, and
accessedaccessed May 15, 2020, at https://www.youtube.com/watch?v=7uUSJx-8fSc.May 15, 2020, at https://www.youtube.com/watch?v=7uUSJx-8fSc. ~~See~~ See also “also “ Stern Landing VesselStern Landing Vessel (SLV)(SLV) vs vs
Conventional Landing Craft – Updated” (video), posted on Conventional Landing Craft – Updated” (video), posted on ~~YouTube~~ YouT ube on April 28, 2019, by Seaon April 28, 2019, by Sea ~~Transport~~ T ransport Solutions, Solutions,
and accessedand accessed May 15, 2020, at https://www.youtube.com/watch?v=qnfVxP67w_Y. May 15, 2020, at https://www.youtube.com/watch?v=qnfVxP67w_Y.
Congressional Research Service Congressional Research Service
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Navy Light Amphibious Warship (LAW) Program: Background and Issues for Congress

Figure 12. Notional Design for a LAW-Like Ship
Artist’s rendering Artist’s rendering

Source: Il ustration accompanying Il ustration accompanying ~~Megan Eckstein, “Navy Researching New Class of Medium Amphibious Ship,~~
New Logistics Ships,” USNI News~~, February 20~~David Axe, “This Weird Little Ship Could Be the Future of Amphibious Warfare,” National Interest, February 24, 2020. The article credits the image to Sea Transport Solutions,, 2020. The article credits the image to Sea Transport Solutions, a
a naval architecture, consulting, surveying, and project-management firm. naval architecture, consulting, surveying, and project-management firm.
Figure 23. Notional Design for a LAW-Like Ship
Artist’s rendering Artist’s rendering

Source: Il ustration accompanying Joseph Trevithick, “Navy Wants To Buy 30 New Light Amphibious Warships To Support Radical Shift In Marine Ops,” The Drive, May 5, 2020. Congressional Research Service 10 Source: Il ustration accompanying David Axe, “This Weird Little Ship Could Be the Future of Amphibious
~~Warfare,” National Interest, February 24, 2020. The article credits the image to Sea Transport Solutions, a naval~~
~~architecture, consulting, surveying, and project-management firm.~~
~~Congressional Research Service~~
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Navy Light Amphibious Warship (LAW) Program: Background and Issues for Congress

Figure 34. Notional Design for a LAW-Like Ship
Artist’s rendering Artist’s rendering

Source: Il ustration accompanying Il ustration accompanying ~~Joseph Trevithick, “Navy Wants To Buy 30 New Light Amphibious Warships~~
~~To Support Radical Shift In Marine Ops,” The Drive, May 5, 2020.~~
~~Figure 4~~Megan Eckstein, “Hudson Recommends 581 Ships, New Class of Corvette as Part of Input to Pentagon Fleet Plan,” USNI News, September 30, 2020. The caption to the il ustration credits it to Sea Transport Solutions, a naval architecture, consulting, surveying, and project-management firm. Figure 5. Notional Design for a LAW-Like Ship
Artist’s rendering Artist’s rendering

Source: ~~Il ustration accompanying Megan Eckstein, “Hudson Recommends 581 Ships, New Class of Corvette as~~
~~Part of Input to Pentagon Fleet Plan,” USNI News, September 30, 2020. The caption to the il ustration credits it~~
~~to Sea Transport Solutions, a naval architecture, consulting, surveying, and project-management firm.~~
~~Congressional Research Service~~
10

Cropped version of il ustration accompanying Caleb Larson, “New Light Amphibious Warship Wil be the U.S. Marine Corps’ Workhorse,” National Interest, December 10, 2020. The article credits the il ustration to Sea Transport Solutions. Congressional Research Service 11 link to page 11 Navy Light Amphibious Warship (LAW) Program: Background and Issues for Congress

~~Figure 5. Notional Design for a LAW-Like Ship~~
~~Artist’s rendering~~

Source: Cropped version of il ustration accompanying Caleb Larson, “New Light Amphibious Warship Wil be
~~the U.S. Marine Corps' Workhorse,” National Interest, December 10, 2020. The article credits the il ustration to~~
~~Sea Transport Solutions~~ Procurement Schedule The Navy envisions the first LAW being procured in FY2022. LAWs did not appear in the Navy’s FY2021 five-year (FY2021-FY2025) shipbuilding plan, but they could appear in the Navy’s FY2022 five-year (FY2022-FY2026) shipbuilding plan, which the Navy is to submit to Congress as part of its FY2022 budget submission. The December 9, 2020, shipbuilding document submitted by the outgoing Trump Administration shows the first 10 LAWs being scheduled for procurement in FY2022-FY2026 in annual quantities of 1-1-2-3-3. .
Procurement Cost
The Navy stated in November 2020 that it wants the LAW’s unit procurement cost to be $100 The Navy stated in November 2020 that it wants the LAW’s unit procurement cost to be $100
~~million to $130 million.32~~ mil ion to $130 mil ion.34 The December 9, 2020, shipbuilding document submitted by the The December 9, 2020, shipbuilding document submitted by the
outgoing Trump Administration shows the first 10 LAWs being procured in FY2022-FY2026 at a outgoing Trump Administration shows the first 10 LAWs being procured in FY2022-FY2026 at a
unit procurement cost of about $150 unit procurement cost of about $150 ~~million~~mil ion. .
By way of comparison, the Navy’s most recently procured LHA-type amphibious ship, which By way of comparison, the Navy’s most recently procured LHA-type amphibious ship, which
was procured in FY2017, has an estimated unit procurement cost in the Navy’s FY2021 budget was procured in FY2017, has an estimated unit procurement cost in the Navy’s FY2021 budget
submission of about $3.8 submission of about $3.8 ~~billion~~bil ion, and LPD-17 Flight II amphibious ships being procured by the , and LPD-17 Flight II amphibious ships being procured by the
Navy have unit procurement costs of about $1.8 Navy have unit procurement costs of about $1.8 ~~billion~~bil ion to $2.0 to $2.0 ~~billion~~bil ion. .
As additional comparisons, the Navy’s Ship-to-Shore Connectors (SSCs)—its new air-cushioned As additional comparisons, the Navy’s Ship-to-Shore Connectors (SSCs)—its new air-cushioned
landing craft—are about 92 feet long and have a unit procurement cost of roughly $65 landing craft—are about 92 feet long and have a unit procurement cost of roughly $65 ~~million~~mil ion, ,
the Coast Guard’s new Fast Response Cutters (FRCs) are 154 feet long and have a unit the Coast Guard’s new Fast Response Cutters (FRCs) are 154 feet long and have a unit
procurement cost of about $65 procurement cost of about $65 ~~million~~mil ion, and the Navy’s new TATS towing, salvage, and rescue , and the Navy’s new TATS towing, salvage, and rescue
ships are 263 feet long and have a unit procurement cost of about $80 ships are 263 feet long and have a unit procurement cost of about $80 ~~million.~~

~~32 Megan Eckstein, “Navy Officials Reveal Details of New $100M Light Amphibious Warship Concept,” USNI News,~~
~~November 19, 2020.~~
~~Congressional Research Service~~
11

~~link to page 10~~ ~~Navy Light Amphibious Warship (LAW) Program: Background and Issues for Congress~~
mil ion.
Potential Builders
The LAW as outlined by the Navy is The LAW as outlined by the Navy is ~~small~~ smal enough that it could be built by any of several U.S. enough that it could be built by any of several U.S.
shipyards. The Navy states that in response to an initial request for information (RFI) about the shipyards. The Navy states that in response to an initial request for information (RFI) about the
LAW, it received responses from 13 firms, including nine shipyards. LAW, it received responses from 13 firms, including nine shipyards.
Acquisition Strategy
The Navy wants to award contracts to multiple firms for conducting industry studies that The Navy wants to award contracts to multiple firms for conducting industry studies that ~~will~~
wil help inform the Navy’s understanding of potential cost-capability tradeoffs in the design of the help inform the Navy’s understanding of potential cost-capability tradeoffs in the design of the
ship. Following that, the Navy wants to award contracts to multiple firms for developing ship. Following that, the Navy wants to award contracts to multiple firms for developing
preliminary designs for the ship. From those preliminary designs, the Navy would then choose its preliminary designs for the ship. From those preliminary designs, the Navy would then choose its
preferred design and builder. The Navy’s baseline preference is to have a single shipyard build preferred design and builder. The Navy’s baseline preference is to have a single shipyard build ~~all~~
al 28 to 30 ships, but the Navy is open to having them built in multiple yards to the same design if 28 to 30 ships, but the Navy is open to having them built in multiple yards to the same design if
doing so could permit the program to be implemented more quickly and/or less expensively.doing so could permit the program to be implemented more quickly and/or less expensively.33
~~An August 27, 2020, press report states~~
~~The Navy and Marine Corps’ new Light Amphibious Warship program is already~~ 35 34 Megan Eckstein, “ Navy Officials Reveal Details of New $100M Light Amphibious Warship Concept ,” USNI News, November 19, 2020. 35 T he Q&A document from the Navy’s April 9, 2020, industry day on the LAW program (see footnote 20) states Q [from industry]: Once [the industry] studies are done, what is the likelihood of [the Navy making] multiple [contract] awards [for the next stage]? A [from Navy]: When the [industry] studies are done, there will be multiple [contract] awards for preliminary design [work]. T hen [the Navy will] down select for a [prefer red] prototype. [There is] No plan for [building the ships at] multiple [ship]yards and [building them to multiple] designs like Congressional Research Service 12 Navy Light Amphibious Warship (LAW) Program: Background and Issues for Congress An August 27, 2020, press report states The Navy and Marine Corps’ new Light Amphibious Warship program is already in in
industry studies, with the service pushing ahead as quickly as possible in an industry studies, with the service pushing ahead as quickly as possible in an
acknowledgement that they’re already behind in their transformation of the force. acknowledgement that they’re already behind in their transformation of the force.
Maj. Gen. Tracy King, the director Maj. Gen. Tracy King, the director of expeditionaryof expeditionary warfare on the chief of naval warfare on the chief of naval
operations’ staff (OPNAVoperations’ staff (OPNAV N95),N95), said today thatsaid today that ~~LAW~~ LAW was perhaps thewas perhaps the most important most important
investment the Marine Corps was making to optimize itself for expeditionary advance base investment the Marine Corps was making to optimize itself for expeditionary advance base
operations (EABO). operations (EABO).
“Having these LAWs out there as an extension of the fleet, under the watchful eye of our “Having these LAWs out there as an extension of the fleet, under the watchful eye of our
Navy, engaging with our partners and allies, building partner capacity, is what I think we Navy, engaging with our partners and allies, building partner capacity, is what I think we
need to be doing right now. I think we’re late to need with building the Light Amphibious need to be doing right now. I think we’re late to need with building the Light Amphibious
Warship, which is why we’re trying to go so quickly,” he said, saying that N95 was copying Warship, which is why we’re trying to go so quickly,” he said, saying that N95 was copying
the surface warfare directorate’s playbook from the frigate program, which moved quickly the surface warfare directorate’s playbook from the frigate program, which moved quickly
from requirements-developmentfrom requirements-development ~~to design to getting under contract thanks to the use~~ to design to getting under contract thanks to the use of of
mature technology and designs from industry.mature technology and designs from industry.34

~~33 The Q&A document from the Navy’s April 9, 2020, industry day on the LAW program (see footnote 18) states~~
~~Q [from industry]: Once [the industry] studies are done, what is the likelihood of [the Navy~~
~~making] multiple [contract] awards [for the next stage]?~~
~~A [from Navy]: When the [industry] studies are done, there will be multiple [contract] awards for~~
~~preliminary design [work]. Then [the Navy will] down select for a [preferred] prototype. [There is]~~
~~No plan for [building the ships at] multiple [ship]yards and [building them to multiple] designs like~~
~~[the] LCS [Littoral Combat Ship program]. It’s too hard of a logistics tail [to provide lifecycle~~
~~support for ships built to multiple designs]. But options are open if it is cheaper/faster.~~
~~Q [from industry]: Do you envision something similar to LCS variance [sic: variants]? Multiple~~
~~yards and designs?~~
~~A [from Navy]: No, it involves too much logistics and O&S [operation and support costs]. This~~
~~drives overall costs initially [i.e., locks higher life-cycle support costs into the program from the~~
~~outset of the program] and we’re not trying to go down that path. As we’ve said before, if studies~~
~~tell us we are wrong, if it’s affordable and fields faster, then we won’t ignore it. The data and cost~~
~~drivers will help us decide. The Government wants to field [the ships] as rapidly as possible, and~~
~~we believe that using multiple yards is not the best and most affordable path.~~
~~34 Megan Eckstein, “Marines Already In Industry Studies for Light Amphibious Warship, In Bid to Field Them~~
~~ASAP,” USNI News, August 27 (updated August 28), 2020. See also Rich Abott, “Marine Corps In Industry Studies~~
~~For Light Amphibious Warship, Trying To Move Quickly,” Defense Daily, August 28, 2020.~~
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~~An October 6, 2020, press report stated that the Navy in July 2020 awarded contracts for LAW~~
~~concept design studies to 15 firms, with the studies due in November 2020. According to the~~
~~press report, the 15 companies awarded contracts included Austal USE, BMT Designers,~~
~~Bollinger Shipyards, Crescere Marine Engineering, Damen, Hyak Marine, Independent Maritime~~
~~Assessment Associates, Nichols Brothers Boat Builders, Sea Transport, Serco, St John~~
~~Shipbuilding, Swiftships, Technology Associates, Thoma-Sea, and VT Halter Marine. The studies~~
~~reportedly were intended to help inform concepts of operation, technical risk, and cost estimates~~
~~for the LAW program, in support of a planned lead-ship contract award in FY2022. The press~~
~~report stated~~
~~Because the LAW program is a new [program] start, any formal solicitation to launch the~~
~~program is hamstrung until an FY-21 defense appropriations bill is enacted….~~
~~The Navy’s FY-21 budget request includes a $30 million request for a “Next Generation~~
~~Medium Amphibious Ship,” a sum that, if included in a final appropriations law, is~~
~~intended to support award of a preliminary design contract and development of required~~
~~acquisition, logistics and test documentation needed to set the stage for a FY-22 detail~~
~~design and construction contract award.35~~
~~On October 16, 2020, the Navy released a request for information (RFI) to solicit industry input~~
~~on draft versions of documents relating to an eventual solicitation for conducting design work on~~
~~the ship.36~~36 An October 6, 2020, press report stated that the Navy in July 2020 awarded contracts for LAW concept design studies to 15 firms, with the studies due in November 2020. According to the press report, the 15 companies awarded contracts included Austal USE, BMT Designers, Bollinger Shipyards, Crescere Marine Engineering, Damen, Hyak Marine, Independent Maritime Assessment Associates, Nichols Brothers Boat Builders, Sea Transport, Serco, St John Shipbuilding, Swiftships, Technology Associates, Thoma-Sea, and VT Halter Marine. The studies reportedly were intended to help inform concepts of operation, technical risk, and cost estimates for the LAW program, in support of a planned lead-ship contract award in FY2022. The press report stated Because the LAW program is a new [program] start, any formal solicitation to launch the program is hamstrung until an FY-21 defense appropriations bill is enacted…. The Navy’s FY-21 budget request includes a $30 million request for a “Next Generation Medium Amphibious Ship,” a sum that, if included in a final appropriations law, is intended to support award of a preliminary design contract and development of required acquisition, logistics and test documentation needed to set the stage for a FY-22 detail design and construction contract award.37 [the] LCS [Littoral Combat Ship program]. It’s too hard of a logistics tail [to provide lifecycle support for ships built to multiple designs]. But options are open if it is cheaper/faster. Q [from industry]: Do you envision something similar to LCS variance [sic: variants]? Multiple yards and designs? A [from Navy]: No, it involves too much logistics and O&S [operation and suppor t costs]. T his drives overall costs initially [i.e., locks higher life-cycle support costs into the program from the outset of the program] and we’re not trying to go down that path. As we’ve said before, if studies tell us we are wrong, if it’s affordable and fields faster, then we won’t ignore it. T he data and cost drivers will help us decide. T he Government wants to field [the ships] as rapidly as possible, and we believe that using multiple yards is not the best and most affordable path. 36 Megan Eckstein, “Marines Already In Industry Studies for Light Amphibious Warship, In Bid to Field T hem ASAP,” USNI News, August 27 (updated August 28), 2020. See also Rich Abott, “ Marine Corps In Industry Studies For Light Amphibious Warship, T rying T o Move Quickly ,” Defense Daily, August 28, 2020. 37 Jason Sherman and Aidan Quigley, “Navy Awaits 15 Light Amphibious Warship ‘Concept Designs’ to Support Program Launch in FY-21,” Inside Defense, October 6, 2020. Congressional Research Service 13 Navy Light Amphibious Warship (LAW) Program: Background and Issues for Congress On October 16, 2020, the Navy released a request for information (RFI) to solicit industry input on draft versions of documents relating to an eventual solicitation for conducting design work on the ship.38
A November 9, 2020 press report stated that, as part of its LAW industry studies, the Navy had A November 9, 2020 press report stated that, as part of its LAW industry studies, the Navy had
received nine LAW concept designs from 16 design firms and shipyards, some of which have received nine LAW concept designs from 16 design firms and shipyards, some of which have
paired into teams. The report quoted a Navy official as stating that the following firms were paired into teams. The report quoted a Navy official as stating that the following firms were
participating in the industry studies: Austal USA, BMT Designers, Bollinger Shipyards, Crescere participating in the industry studies: Austal USA, BMT Designers, Bollinger Shipyards, Crescere
Marine Engineering, Damen, Hyak Marine, Independent Maritime Assessment Associates, Marine Engineering, Damen, Hyak Marine, Independent Maritime Assessment Associates,
Nichols Brothers Boat Builders, Sea Transport, Serco, St. John Shipbuilding, Swiftships, Nichols Brothers Boat Builders, Sea Transport, Serco, St. John Shipbuilding, Swiftships,
Technology Associates Inc., Thoma-Sea, VT Halter Marine and Fincantieri.Technology Associates Inc., Thoma-Sea, VT Halter Marine and Fincantieri.3739 A November 19, A November 19,
2020, press report stated that “about six industry teams are working with the sea services [i.e., the 2020, press report stated that “about six industry teams are working with the sea services [i.e., the
Navy and Marine Corps] after two industry days and industry studies over the summer.Navy and Marine Corps] after two industry days and industry studies over the summer.38
40 A January 11, 2021, press report stated: A January 11, 2021, press report stated:
The Navy and Marine Corps are quickly seeking new ideas that allow Marines to support The Navy and Marine Corps are quickly seeking new ideas that allow Marines to support
the Navy in sea control and other maritime missions, including the rapid acquisition of a the Navy in sea control and other maritime missions, including the rapid acquisition of a
light amphibious ship and a movement toward using Marine weapons while at sea. light amphibious ship and a movement toward using Marine weapons while at sea.
Maj. Gen. Tracy King, the director Maj. Gen. Tracy King, the director of expeditionaryof expeditionary warfare on the chief of naval warfare on the chief of naval
operations’operations’ ~~staff~~ staff (OPNAV N95), told(OPNAV N95), told USNI NewsUSNI News ~~during~~ during a Jan.a Jan. 8 media call that8 media call that the the
services are moving quickly to buy their first light amphibious warship (LAW) in Fiscal services are moving quickly to buy their first light amphibious warship (LAW) in Fiscal
Year 2022,Year 2022, as outlined in the recent long-range shipbuilding plan. ~~as outlined in the recent long-range shipbuilding plan.~~

~~35 Jason Sherman and Aidan Quigley, “Navy Awaits 15 Light Amphibious Warship ‘Concept Designs’ to Support~~
~~Program Launch in FY-21,” Inside Defense, October 6, 2020.~~
~~36 See “RFI: DRAFT US Navy Light Amphibious Warship Preliminary Design/Contract Design Statement of Work,”~~
~~Beta.sam.gov, accessed November 23, 2020, at~~
~~https://beta.sam.gov/opp/c1c8a3900504442fa5ad3bac48cec001/view?index=opp. See also Rich Abott, “Navy Issues~~
~~RFI For Light Amphibious Warship Preliminary Design,” Defense Daily, October 19, 2020; Aidan Quigley, “Navy~~
~~Solicits Light Amphibious Warship Preliminary Designs,” Inside Defense, October 19, 2020.~~
~~37 Aidan Quigley, “Nine Concept Designs Submitted for LAW Industry Studies,” Inside Defense, November 9, 2020.~~
~~38 Megan Eckstein, “Navy Officials Reveal Details of New $100M Light Amphibious Warship Concept,” USNI News,~~
~~November 19, 2020.~~
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~~Navy Light Amphibious Warship (LAW) Program: Background and Issues for Congress~~

“We’re moving out at flank speed; I got a chance to brief the CNO and the commandant “We’re moving out at flank speed; I got a chance to brief the CNO and the commandant
recently, and they told me to maintain course and heading,” he said during the media recently, and they told me to maintain course and heading,” he said during the media ~~call~~cal
ahead of the annual Surface Navy Association symposium. ahead of the annual Surface Navy Association symposium.
“We’re going through the formal JCIDS (Joint Capabilities Integration and Development “We’re going through the formal JCIDS (Joint Capabilities Integration and Development
System)System) ~~process right now. [Naval Sea Systems Command] has completed its~~ process right now. [Naval Sea Systems Command] has completed its second second
industry studies, and we’re working on all those documents.” industry studies, and we’re working on all those documents.”
For now, 10 or 11 For now, 10 or 11 ~~industry~~ industry teams remain involved in theteams remain involved in the NAVSEA competition,NAVSEA competition, which which
recently held a second round of industry studies. NAVSEA is working with those teams to recently held a second round of industry studies. NAVSEA is working with those teams to
help iterate what King called “novel” designs, to ensure they were the right size and could help iterate what King called “novel” designs, to ensure they were the right size and could
achieveachieve ~~cost and~~ cost and performance requirements.performance requirements. ~~Mid~~ Mid next year,next year, he he said,said, NAVSEA would NAVSEA would
downselect to three teams for full design, and then would downselect to just one to build downselect to three teams for full design, and then would downselect to just one to build
the first LAW in late FY 2022. the first LAW in late FY 2022.
“My suspicion is that we’ll begin [research, development, test and evaluation] next year, “My suspicion is that we’ll begin [research, development, test and evaluation] next year,
and then we are aiming at lead ship construction in FY ’22, it’s going to be late in FY ’22 and then we are aiming at lead ship construction in FY ’22, it’s going to be late in FY ’22
,but I still consider that pretty fast,” King said. ,but I still consider that pretty fast,” King said.
“We’re just going to build one, get that out and start playing with it. We’ll probably build “We’re just going to build one, get that out and start playing with it. We’ll probably build
~~one the next year because we’ve got to get the doctrine right. The [Marine~~ one the next year because we’ve got to get the doctrine right. The [Marine Littoral Littoral
Regiments] are going to start coming online at about the same time – first one’s in Hawaii, Regiments] are going to start coming online at about the same time – first one’s in Hawaii,
we’ll get it out there and let them play with it. And then we’ll go into a build profile of, I we’ll get it out there and let them play with it. And then we’ll go into a build profile of, I
38 See “RFI: DRAFT US Navy Light Amphibious Warship Preliminary Design/Contract Design Statement of Work,” Beta.sam.gov, accessed November 23, 2020, at https://beta.sam.gov/opp/c1c8a3900504442fa5ad3bac48cec001/view?index=opp. See also Rich Abott, “ Navy Issues RFI For Light Amphibious Warship Preliminary Design ,” Defense Daily, October 19, 2020; Aidan Quigley, “ Navy Solicits Light Amphibious Warship Preliminary Designs,” Inside Defense, October 19, 2020. 39 Aidan Quigley, “Nine Concept Designs Submitted for LAW Industry Studies,” Inside Defense, November 9, 2020. 40 Megan Eckstein, “ Navy Officials Reveal Details of New $100M Light Amphibious Warship Concept ,” USNI News, November 19, 2020. Congressional Research Service 14 Navy Light Amphibious Warship (LAW) Program: Background and Issues for Congress don’t know, probably four or five a year or something like that is what we’re going to aim for.”41~~don’t know, probably four or five a year or something like that is what we’re going to aim~~
~~for.”39~~
FY2021 Funding Request
The Navy’s proposed FY2021 budget requested $30 The Navy’s proposed FY2021 budget requested $30 ~~million~~mil ion in research and development funding in research and development funding
for initialfor initial industry studies and concept design work on the ship. The funding was requested in industry studies and concept design work on the ship. The funding was requested in
Project 4044 (Next Generation Medium Amphibious Ship) of PE (Program Element) 0603563N Project 4044 (Next Generation Medium Amphibious Ship) of PE (Program Element) 0603563N
(Ship Concept Advanced Design), which is line number 45 in the Navy’s FY2021 research and (Ship Concept Advanced Design), which is line number 45 in the Navy’s FY2021 research and
development account. Of the $30 development account. Of the $30 ~~million~~mil ion requested, $21.5 requested, $21.5 ~~million~~mil ion was requested for industry was requested for industry
studies and concept design work, which would be sufficient to support the award of several studies and concept design work, which would be sufficient to support the award of several
contracts with values of up to perhaps $3 contracts with values of up to perhaps $3 ~~million~~mil ion each. each.4042
Issues for Congress
The LAW program poses a number of potential oversight matters for Congress, including those The LAW program poses a number of potential oversight matters for Congress, including those
discussed briefly in the sections below. discussed briefly in the sections below.
EABO Operational Concept
One potential oversight issue for Congress concerns the merits of the EABO operational concept One potential oversight issue for Congress concerns the merits of the EABO operational concept
that the LAWthat the LAW is intended to help Marine Corps implement. Debate on the merits of the EABO is intended to help Marine Corps implement. Debate on the merits of the EABO
concept concerns issues such as concept concerns issues such as

~~39 Megan Eckstein, “Marines, Navy Moving Quickly on Light Amphib, Anti-Ship Missiles to Create More Warfighting~~
~~Options,” USNI News, January 11, 2021. Material in brackets as in original. See also Rich Abott, “Kilby Outlines~~
~~Factors Leading To Faster New Light Amphib Development,” Defense Daily, February 5, 2021.~~
~~40 The remainder of the $30 million requested is proposed for use as follows: $5 million for program management and~~
~~engineering support, $2.5 million for studies on specialized topics, and $1 million for development of an indicative~~
~~design, meaning a notional in-house Navy design that the Navy would use in evaluating shipbuilder-developed designs.~~
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~~Navy Light Amphibious Warship (LAW) Program: Background and Issues for Congress~~

~~ whether the concept is focused too exclusively on potential conflict scenarios~~
~~with China at the expense of other kinds of potential Marine Corps missions;~~
~~ the ability of Marine forces to gain access to the islands from which they would~~
~~operate;~~
~~ the ability to resupply Marine forces that are operating on the islands;~~
~~ the survivability of Marine forces on the islands and in surrounding waters;~~
~~ how much of a contribution the envisioned operations by Marine forces would~~
~~make in contributing to overall U.S. sea-denial operations; and~~
~~ potential alternative ways of using the funding and personnel that would be~~
~~needed to implement EABO.41~~  whether the concept is focused too exclusively on potential conflict scenarios with China at the expense of other kinds of potential Marine Corps missions;  the ability of Marine forces to gain access to the islands from which they would operate;  the ability to resupply Marine forces that are operating on the islands;  the survivability of Marine forces on the islands and in surrounding waters;  how much of a contribution the envisioned operations by Marine forces would make in contributing to overal U.S. sea-denial operations; and  potential alternative ways of using the funding and personnel that would be needed to implement EABO.43 41 Megan Eckstein, “ Marines, Navy Moving Quickly on Light Amphib, Anti-Ship Missiles to Create More Warfighting Options,” USNI News, January 11, 2021. Material in brackets as in original. See also Rich Abott, “ Kilby Outlines Factors Leading T o Faster New Light Amphib Development ,” Defense Daily, February 5, 2021. 42 T he remainder of the $30 million requested is proposed for use as follows: $5 million for program management and engineering support, $2.5 million for studies on specialized topics, and $1 million for development of an indicative design, meaning a notional in-house Navy design that the Navy would use in evaluating shipbuilder-developed designs. 43 For a CRS report on the proposed redesign of the Marine Corps to support new operational concepts such as EABO, see CRS Insight IN11281, New U.S. Marine Corps Force Design Initiatives, by Andrew Feickert . For Marine Corps statements about the redesign of the Marine Corps and EABO, see U.S. Marine Corps, Commandant’s Planning Guidance, 38th Commandant of the Marine Corps, undated, released July 2019, 23 pp.; U.S. Marine Corps, Force Design 2030, March 2020, 13 pp.; David H. Berger, “ T he Case for Change,” Marine Corps Gazette, June 2020: 8-12. See also Megan Eckstein, “ Marines T esting Regiment at Heart of Emerging Island-Hopping Future,” USNI News, June 4 (updated June 12), 2020; Megan Eckstein, “ Marines Look to T wo New Ship Classes to Define Future of Amphibious Operations,” USNI News, June 4 (updated June 12), 202; David Berger, “ Marines Will Help Fight Submarines,” U.S. Naval Institute Proceedings, November 2020. Congressional Research Service 15 Navy Light Amphibious Warship (LAW) Program: Background and Issues for Congress
Potential oversight questions for Congress include, What are the potential benefits, costs, and Potential oversight questions for Congress include, What are the potential benefits, costs, and
risks of the EABO concept? What work have the Navy and Marine Corps done in terms of risks of the EABO concept? What work have the Navy and Marine Corps done in terms of
analyses and war games to develop and test the concept? Would EABO be more cost effective to analyses and war games to develop and test the concept? Would EABO be more cost effective to
implement than other potential uses of the funding and personnel? implement than other potential uses of the funding and personnel?

~~41 For a CRS report on the proposed redesign of the Marine Corps to support new operational concepts such as EABO,~~
~~see CRS Insight IN11281, New U.S. Marine Corps Force Design Initiatives, by Andrew Feickert.~~
~~For Marine Corps statements about the redesign of the Marine Corps and EABO, see U.S. Marine Corps,~~
Commandant’s Planning Guidance, 38th Commandant of the Marine Corps, undated, released July 2019, 23 pp.; U.S.
~~Marine Corps, Force Design 2030, March 2020, 13 pp.; David H. Berger, “The Case for Change,”~~ ~~Marine Corps~~
~~Gazette, June 2020: 8-12. See also Megan Eckstein, “Marines Testing Regiment at Heart of Emerging Island-Hopping~~
~~Future,” USNI News, June 4 (updated June 12), 2020; Megan Eckstein, “Marines Look to Two New Ship Classes to~~
~~Define Future of Amphibious Operations,” USNI News, June 4 (updated June 12), 202; David Berger, “Marines Will~~
~~Help Fight Submarines,” U.S. Naval Institute Proceedings, November 2020.~~
~~For press articles discussing the proposed redesign of the Marine Corps to support new operational concepts such as~~
~~EABO, see Philip Athey, “Marines vs. China―the Corps Just Put These Tactics to the Test,” Marine Corps Times,~~
~~October 19, 2020; Mark Perry, “The Marines Corps Is Rolling Out a ‘Subversive’ New Strategy to Take on China,”~~
~~Business Insider, October 15, 2020; David B. Larter, “Are the US Army and US Marine Corps Competing for Missions~~
~~in the Pacific?” Defense News, October 14, 2020; Michael Fabey, “Template For Change: Marine Corps’ New Vision~~
~~Sets A Headmark For U.S. Navy Transformation,” Jane’s Navy International, September 9, 2020; Chris “Junior”~~
~~Cannon, “The Commandant Needs Our Help: Accelerating Marine Corps Force Development,” Center for International~~
~~Maritime Security (CIMSEC), August 25, 2020; Mallory Shelbourne, “Panel: New Focus on China Fight Could Rob~~
~~Marine Corps of Versatility,” USNI News, July 30, 2020; Tanner Greer, “The Tip of the American Military Spear Is~~
~~Being Blunted,” Foreign Policy, July 6, 2020; Ben Wan Beng Ho, “Shortfalls in the Marine Corps’ EABO Concept,”~~
U.S. Naval Institute Proceedings, July 2020; J. Noel Williams, “Force Design,” Marine Corps Gazette, July 2020;
~~Dakota Wood, “The Marines: To Boldly Go Where the Corps Has Gone Before,” Washington Times, June 24, 2020;~~
~~Paul McLeary, “In War, Chinese Shipyards Could Outpace US in Replacing Losses; Marine Commandant,”~~ ~~Breaking~~
~~Defense, June 17, 2020; Dakota Wood, The U.S. Marine Corps: A Service in Transition, Heritage Foundation, June~~
~~216, 2020, 18 pp.; David B. Larter, “In His Fight to Change the Corps, America’s Top Marine Takes Friendly Fire,”~~
Defense News, June 11, 2020; Gina Harkins, “Marine 3-Star Hits Back at Claims that Corps’ Future Design Is Too
~~China-Focused,” Military.com, June 2, 2020; Frank G. Hoffman, “Still First to Fight?” Marine Corps Gazette, June~~
~~2020; Gary Anderson, “Addressing the Chinese Threat in the Indo-Pacific Area,” Washington Times, May 25, 2020;~~
~~Matthew Fay and Michael A. Hunzeker, “No Sure Victory: The Marines New Force Design Plan and the Politics of~~
~~Implementation,” War on the Rocks, May 14, 2020; Jim Webb, “The Future of the U.S. Marine Corps,”~~ ~~National~~
~~Interest, May 8, 2020; Grant Newsham, “US Marines Revamp Amid China’s Growing Threat,” Asia Times, May 7,~~
~~2020; Jeff Cummings, Scott Cuomo, Olivia A. Garard, and Noah Spataro, “Getting the Context of Marine Corps~~
~~Reform Right,” War on the Rocks, May 1, 2020; Benjamin Jensen, “The Rest of the Story: Evaluating the U.S. Marine~~
~~Corps Force Design 2030,” War on the Rocks, April 27, 2020; T. X. Hammes, “Building a Marine Corps for Every~~
~~Contingency, Clime, and Place,” War on the Rocks, April 15, 2020; Mark F. Cancian, “The Marine Corps’ Radical~~
~~Shift toward China,” Center for Strategic and International Studies (CSIS), March 25, 2020.~~
~~Congressional Research Service~~
15

~~Navy Light Amphibious Warship (LAW) Program: Background and Issues for Congress~~

~~LAWs Within Overall Navy Fleet Architecture~~
~~Another potential oversight issue for Congress concerns how the LAW would fit into the Navy’s~~
~~overall future fleet architecture. Potential oversight questions for Congress include, What is the~~
~~analytical basis for the envisioned procurement quantity of 28 to 30 LAWs? How well can the~~
~~cost-effectiveness of a force of 28 to 30 LAWs be assessed if the remainder of the Navy’s future~~
~~fleet architecture is not yet fully known?~~
~~Preliminary Cost Target~~
~~Another potential oversight issue for Congress concerns the Navy’s preliminary procurement cost~~
~~target for the LAW. Potential oversight questions for Congress include the following: Is the~~
~~Navy’s estimated unit procurement cost reasonable, given the features the Navy wants the ship to~~
~~have? As the LAW program proceeds, will the operational requirements (and thus cost) of the~~
~~LAW increase? In connection questions such as these, a September 21, 2020, press report states~~
~~The U.S. Marine Corps is moving as fast as it can to field a new class of light amphibious~~
~~warship, but it remains unclear what it will do, where it will be based or what capabilities~~
~~it will bring to the fight.~~
~~The idea behind the ship is to take a commercial design or adapt a historic design to make~~
~~a vessel capable of accommodating up to 40 sailors and at least 75 Marines to transport~~
~~Marine kit over a range of about 3,500 nautical miles, according to a recent industry day~~
~~presentation.~~
~~While the presentation noted that the ship should have few tailored Navy requirements,~~
~~that also creates a problem: If the Navy is going to pay tens of millions to develop, build,~~
~~crew and operate them, should it not provide some additional value to the fleet [beyond its~~
~~currently envisioned role]?~~
~~Analysts, experts and sources with knowledge of internal discussions who spoke~~ LAWs Within Overall Navy Fleet Architecture Another potential oversight issue for Congress concerns how the LAW would fit into the Navy’s overal future fleet architecture. Potential oversight questions for Congress include, What is the analytical basis for the envisioned procurement quantity of 28 to 30 LAWs? How wel can the cost-effectiveness of a force of 28 to 30 LAWs be assessed if the remainder of the Navy’s future fleet architecture is not yet fully known? Preliminary Cost Target Another potential oversight issue for Congress concerns the Navy’s preliminary procurement cost target for the LAW. Potential oversight questions for Congress include the following: Is the Navy’s estimated unit procurement cost reasonable, given the features the Navy wants the ship to have? As the LAW program proceeds, wil the operational requirements (and thus cost) of the LAW increase? In connection questions such as these, a September 21, 2020, press report states The U.S. Marine Corps is moving as fast as it can to field a new class of light amphibious warship, but it remains unclear what it will do, where it will be based or what capabilities it will bring to the fight. The idea behind the s hip is to take a commercial design or adapt a historic design to make a vessel capable of accommodating up to 40 sailors and at least 75 Marines to transport For press articles discussing the proposed redesign of the Marine Corps to support new operational concepts such as EABO, see Philip Athey, “ Marines vs. China―the Corps Just Put T hese T actics to the T est,” Marine Corps Times, October 19, 2020; Mark Perry, “ The Marines Corps Is Rolling Out a ‘Subversive’ New Strategy to T ake on China,” Business Insider, October 15, 2020; David B. Larter, “ Are the US Army and US Marine Corps Competing for Missions in the Pacific?” Defense News, October 14, 2020; Michael Fabey, “ T emplate For Change: Marine Corps’ New Vision Sets A Headmark For U.S. Navy T ransformation ,” Jane’s Navy International, September 9, 2020; Chris “ Junior” Cannon, “ T he Commandant Needs Our Help: Accelerating Marine Corps Force Development ,” Center for International Maritime Security (CIMSEC), August 25, 2020; Mallory Shelbourne, “ Panel: New Focus on China Fight Could Rob Marine Corps of Versatility,” USNI News, July 30, 2020; T anner Greer, “ T he T ip of the American Military Spear Is Being Blunted,” Foreign Policy, July 6, 2020; Ben Wan Beng Ho, “ Shortfalls in the Marine Corps’ EABO Concept ,” U.S. Naval Institute Proceedings, July 2020; J. Noel Williams, “ Force Design,” Marine Corps Gazette, July 2020; Dakota Wood, “ T he Marines: T o Boldly Go Where the Corps Has Gone Before,” Washington Times, June 24, 2020; Paul McLeary, “ In War, Chinese Shipyards Could Outpace US in Replacing Losses; Marine Commandant,” Breaking Defense, June 17, 2020; Dakota Wood, The U.S. Marine Corps: A Service in Transition , Heritage Foundation, June 216, 2020, 18 pp.; David B. Larter, “ In His Fight to Change the Corps, America’s T op Marine T akes Friendly Fire,” Defense News, June 11, 2020; Gina Harkins, “ Marine 3-Star Hits Back at Claims that Corps’ Future Design Is T oo China-Focused,” Military.com , June 2, 2020; Frank G. Hoffman, “ Still First to Fight?” Marine Corps Gazette, June 2020; Gary Anderson, “ Addressing the Chinese T hreat in the Indo-Pacific Area,” Washington Times, May 25, 2020; Matthew Fay and Michael A. Hunzeker, “No Sure Victory: T he Marines New Force Design Plan and the Politics of Implementation,” War on the Rocks, May 14, 2020; Jim Webb, “ T he Future of the U.S. Marine Corps,” National Interest, May 8, 2020; Grant Newsham, “ US Marines Revamp Amid China’s Growing T hreat,” Asia Tim es, May 7, 2020; Jeff Cummings, Scott Cuomo, Olivia A. Garard, and Noah Spataro, “ Getting the Context of Marine Corps Reform Right,” War on the Rocks, May 1, 2020; Benjamin Jensen, “ T he Rest of the Story: Evaluating the U.S. Marine Corps Force Design 2030,” War on the Rocks, April 27, 2020; T . X. Hammes, “ Building a Marine Corps for Every Contingency, Clime, and Place,” War on the Rocks, April 15, 2020; Mark F. Cancian, “ T he Marine Corps’ Radical Shift toward China,” Center for Strategic and International Studies (CSIS), March 25, 2020. Congressional Research Service 16 link to page 22 Navy Light Amphibious Warship (LAW) Program: Background and Issues for Congress Marine kit over a range of about 3,500 nautical miles, according to a recent industry day presentation. While the presentation noted that the ship should have few tailored Navy requirements, that also creates a problem: If the Navy is going to pay tens of millions to develop, build, crew and operate them, should it not provide some additional value to the fleet [beyond its currently envisioned role]? Analysts, experts and sources with knowledge of internal discussions who spoke to to
Defense News say the answer to that question is a source of friction inside the Pentagon…. Defense News say the answer to that question is a source of friction inside the Pentagon….
When asked whether the ship should contribute to a more distributed sensor architecture to When asked whether the ship should contribute to a more distributed sensor architecture to
align with the Navy’s desire to be more spread out over a large area during a fight, [he align with the Navy’s desire to be more spread out over a large area during a fight, [he
chief of naval operations’chief of naval operations’ ~~director of expeditionary warfare,~~ director of expeditionary warfare, Maj. Gen. TracyMaj. Gen. Tracy King] King]
answered in the affirmative. answered in the affirmative.
“[But] I really see it benefiting from [that architecture] more,” he said. “We need to build “[But] I really see it benefiting from [that architecture] more,” he said. “We need to build
an affordable ship that can get after the ability to do maritime campaigning in the littorals.” an affordable ship that can get after the ability to do maritime campaigning in the littorals.”
The The ~~unstated implication appeared to be that if the ship is loaded up with sensors~~ unstated implication appeared to be that if the ship is loaded up with sensors and and
requirements, it willrequirements, it will slow down the process and increase the cost. Analysts who spoke to slow down the process and increase the cost. Analysts who spoke to
Defense News agreed with that, saying the Navy is likely trying to put more systems on Defense News agreed with that, saying the Navy is likely trying to put more systems on
the platform that will make it more complex and more expensive…. the platform that will make it more complex and more expensive….
“The hardest part is going to be appetite suppression, especially on the part of the Navy,” “The hardest part is going to be appetite suppression, especially on the part of the Navy,”
saidsaid ~~Dakota Wood, a retired Marine officer and analyst with The Heritage Foundation.~~
Dakota Wood, a retired Marine officer and analyst with The Heritage Foundation. “This is what we saw in the littoral combat ship LCS]:“This is what we saw in the littoral combat ship LCS]:4244 It started out as a very light, near- It started out as a very light, near-
shore, small and inexpensive street fighter. And then people started adding on shore, small and inexpensive street fighter. And then people started adding on
requirements. You had ballooning costs, increasing complexity of the platform, and you requirements. You had ballooning costs, increasing complexity of the platform, and you
get into all kinds of problemsget into all kinds of problems …. ….
[Jerry Hendrix, a retired Navy captain and analyst with the Telemus Group] acknowledged [Jerry Hendrix, a retired Navy captain and analyst with the Telemus Group] acknowledged
thatthat ~~the Navy has good reason to want the light amphibious warship to have more~~

~~42 For more on the LCS program, see CRS Report RL33741,~~ ~~Navy Littoral Combat Ship (LCS) Program: Background~~
~~and Issues for Congress, by Ronald O'Rourke.~~
~~Congressional Research Service~~
16

~~link to page 21~~

~~Navy Light Amphibious Warship (LAW) Program: Background and Issues for Congress~~

the Navy has good reason to want the light amphibious warship to have more capability, but added that the Corps is more interested in something simple than something capability, but added that the Corps is more interested in something simple than something
costly and elaborate. costly and elaborate.
“What that does,” Hendrix said, “is drive up unit cost and drive down the numbers that can “What that does,” Hendrix said, “is drive up unit cost and drive down the numbers that can
be purchased.”be purchased.”4345
Potential Alternative of Adapting Existing Army LSVs
Another potential issue for Congress is whether at least some portion of the operational Another potential issue for Congress is whether at least some portion of the operational
requirements for the LAW program could be met cost effectively met by adapting existing U.S. requirements for the LAW program could be met cost effectively met by adapting existing U.S.
~~military~~ military ships rather than building new LAWs. Some observers, for example, argue that at least ships rather than building new LAWs. Some observers, for example, argue that at least
some portion of the operational requirements for the LAW program could be met more cost-some portion of the operational requirements for the LAW program could be met more cost-
effectively by transferring existing Army watercraft known as Logistics Support Vessels (LSVs) effectively by transferring existing Army watercraft known as Logistics Support Vessels (LSVs)
(Figure 6) to the Navy and adapting these LSVs to the LAW mission. to the Navy and adapting these LSVs to the LAW mission.
44 For more on the LCS program, see CRS Report RL33741, Navy Littoral Combat Ship (LCS) Program: Background and Issues for Congress, by Ronald O'Rourke. 45 David B. Larter, “ US Marines Wants to Move Fast on a Light Amphibious Warship. But What is It?” Defense News, September 21, 2020. Congressional Research Service 17 Navy Light Amphibious Warship (LAW) Program: Background and Issues for Congress Figure 6. Besson-Class Logistics Support Vessel (LSV)

Source: Cropped versionCropped version of photograph accompanying Walkerof photograph accompanying Walker D. Mil s and Joseph Hanacek, “The US Navy and D. Mil s and Joseph Hanacek, “The US Navy and
Marine Corps Should Acquire ArmyMarine Corps Should Acquire Army Watercraft,” Watercraft,” Defense News, June 22, 2020. The caption to the photograph , June 22, 2020. The caption to the photograph
credits the photograph to the U.S. Navy and states, “U.S. Navy sailorscredits the photograph to the U.S. Navy and states, “U.S. Navy sailors conduct a simulatedconduct a simulated ~~disaster relief~~ disaster relief supply supply
offload from a Generaloffload from a General Frank S. Besson-classFrank S. Besson-class ~~logistics~~ logistics support vesselsupport vessel at Joint Base Pearl Harbor-Hickamat Joint Base Pearl Harbor-Hickam on July on July
10, 2016.” 10, 2016.”
A June 22, 2020, opinion piece discussing this idea states A June 22, 2020, opinion piece discussing this idea states
The Navy intends to acquire up to 30 new light amphibious warships, or LAW, to support The Navy intends to acquire up to 30 new light amphibious warships, or LAW, to support
new Marine Corps requirements.… Rather than accepting a new amphibious design built new Marine Corps requirements.… Rather than accepting a new amphibious design built
from the ground up, however, decision-makers should take advantage of the fact that many from the ground up, however, decision-makers should take advantage of the fact that many
key requirements of the new vessels are very similar to the capabilities of vessels operated key requirements of the new vessels are very similar to the capabilities of vessels operated
by U.S. Army Transportation Command. by U.S. Army Transportation Command.

~~43 David B. Larter, “US Marines Wants to Move Fast on a Light Amphibious Warship. But What is It?” Defense News,~~
~~September 21, 2020.~~
~~Congressional Research Service~~
17

~~Navy Light Amphibious Warship (LAW) Program: Background and Issues for Congress~~

The Navy and Marine Corps should delay any new construction and immediately acquire The Navy and Marine Corps should delay any new construction and immediately acquire
some of these existing vessels to drive experimentation and better inform their some of these existing vessels to drive experimentation and better inform their
requirements for the LAW program…. requirements for the LAW program….
U.S. Army Transportation U.S. Army Transportation ~~Command has over 100 vessels, and dozens have similar~~
~~capabilities to those required of the LAW. The Army’s LCU-2000s, also~~ Command has over 100 vessels, and dozens have similar capabilities to those required of the LAW. The Army’s LCU-2000s, also called the called the
Runnymede-class large landing crafts, are smaller,Runnymede-class large landing crafts, are smaller, with roughlywith roughly half of the cargo space half of the cargo space
designeddesigned ~~for the LAW and slightly slower, but they boast nearly double the range.~~ for the LAW and slightly slower, but they boast nearly double the range. The The
Runnymede-class vessels have nearly 4,000 square feet of cargo space and can travel 6,500 Runnymede-class vessels have nearly 4,000 square feet of cargo space and can travel 6,500
miles when loaded and at 12 knots; and they can unload at the beach miles when loaded and at 12 knots; and they can unload at the beach ~~with~~wit h their bow ramp. their bow ramp.
The The Army’s GeneralArmy’s General Frank S.Frank S. Besson-class logistics support vessels areBesson-class logistics support vessels are larger than the larger than the
future LAW, at 273 feet in length but can claim 10,500 square feet of cargo space and a future LAW, at 273 feet in length but can claim 10,500 square feet of cargo space and a
6,500-mile6,500-mile range loaded to match the LCU-2000. These vessels also have both a bow and range loaded to match the LCU-2000. These vessels also have both a bow and
stern ramp for roll-on/roll-off capability at the beach or ship-to-ship docking at sea. The stern ramp for roll-on/roll-off capability at the beach or ship-to-ship docking at sea. The
version built for the Phillipine military also has a helipad. version built for the Phillipine military also has a helipad.
Army Transportation Command Army Transportation Command ~~has~~ has 32 Runnymede-class32 Runnymede-class ~~and eight~~ and eight General Frank S. General Frank S.
Besson-class vessels in service. Mostly built in the 1990s, both classes of vessel have many Besson-class vessels in service. Mostly built in the 1990s, both classes of vessel have many
years left in their life expectancy and more than meet the Navy’s 10-year life expectancy years left in their life expectancy and more than meet the Navy’s 10-year life expectancy
for the LAW. for the LAW.
Congressional Research Service 18 Navy Light Amphibious Warship (LAW) Program: Background and Issues for Congress These vessels are operable today and could be transferred from the Army to the Navy or These vessels are operable today and could be transferred from the Army to the Navy or
MarineMarine ~~Corps~~ Corps tomorrow. In fact, thetomorrow. In fact, the Army was attemptingArmy was attempting ~~to divest~~ to divest itself of these itself of these
watercraft less than a year ago, which underscores the importance of this opportunity even watercraft less than a year ago, which underscores the importance of this opportunity even
further. Congress is firmly set against the Army getting rid of valuable, seaworthy vessels further. Congress is firmly set against the Army getting rid of valuable, seaworthy vessels
and has quashed all of the Army’s efforts to do so thus far, but transferring this equipment and has quashed all of the Army’s efforts to do so thus far, but transferring this equipment
to the Navy is a reasonable course of action that should satisfy all parties involved…. to the Navy is a reasonable course of action that should satisfy all parties involved….
By acquiring a watercraft that meets most of their requirements from the Army, the Navy By acquiring a watercraft that meets most of their requirements from the Army, the Navy
andand ~~Marine Corps simultaneously fill current capability gaps and obtain an~~ Marine Corps simultaneously fill current capability gaps and obtain an invaluable invaluable
series of assets they can use to support the evaluation and experimentation of new designs series of assets they can use to support the evaluation and experimentation of new designs
and concepts. This will allow Navy and Marine leaders to give their units the maximum and concepts. This will allow Navy and Marine leaders to give their units the maximum
amount of time to evaluate and experiment with new designs to get a better idea of what amount of time to evaluate and experiment with new designs to get a better idea of what
they need both in future amphibious craft as well as operational and support equipment…. they need both in future amphibious craft as well as operational and support equipment….
Often overlooked, the availability of surplus vessels is absolutely critical to the process of Often overlooked, the availability of surplus vessels is absolutely critical to the process of
developing new technologies, developing the tactics to employ them, conducting training, developing new technologies, developing the tactics to employ them, conducting training,
andand ~~providing decision-makers the requisite capacity to~~ providing decision-makers the requisite capacity to remain flexible in theremain flexible in the ~~face~~ face of of
unexpected challenges…. unexpected challenges….
[The [The ~~Navy and Marine Corps have] long been in need of a boost in their~~ Navy and Marine Corps have] long been in need of a boost in their amphibious amphibious
capabilities so as to be better positioned to meet the demands of today and prepare for the capabilities so as to be better positioned to meet the demands of today and prepare for the
challenges of tomorrow, and taking possession of the Army’s Runnymede- and Frank S. challenges of tomorrow, and taking possession of the Army’s Runnymede- and Frank S.
Benson-class vessels is a solution on a silver platter.Benson-class vessels is a solution on a silver platter.4446
Potential questions for Congress include the following: Potential questions for Congress include the following:
 How many of these watercraft would be available for transfer to the Navy for use  How many of these watercraft would be available for transfer to the Navy for use
in meeting the operational requirements of the LAW program? in meeting the operational requirements of the LAW program?
 How do the capabilities of these watercraft compare with those required for the  How do the capabilities of these watercraft compare with those required for the
LAW? LAW?
 How much remaining service life do these watercraft have?  How much remaining service life do these watercraft have?

~~44 Walker D. Mills and Joseph Hanacek, “The US Navy and Marine Corps Should Acquire Army Watercraft,”~~ ~~Defense~~
~~News, June 22, 2020.~~
~~Congressional Research Service~~
18

~~Navy Light Amphibious Warship (LAW) Program: Background and Issues for Congress~~

 Given the number of these watercraft that would be available for transfer to the  Given the number of these watercraft that would be available for transfer to the
Navy, their operational capabilities, and their remaining service life, what portion Navy, their operational capabilities, and their remaining service life, what portion
of the LAW program’s operational requirements could transferred watercraft of the LAW program’s operational requirements could transferred watercraft
meet? How many LAWs, if any, would meet? How many LAWs, if any, would ~~still~~ stil need to be built to fully or need to be built to fully or
~~substantially~~substantial y meet the LAW program’s operational requirements? meet the LAW program’s operational requirements?
 How do the acquisition and operation and support (O&S) costs of these  How do the acquisition and operation and support (O&S) costs of these
watercraft compare to the estimated acquisition and O&S costs of the LAWs they watercraft compare to the estimated acquisition and O&S costs of the LAWs they
would replace? would replace?
 Taking into account capabilities, acquisition costs, and O&S costs, how does the  Taking into account capabilities, acquisition costs, and O&S costs, how does the
cost effectiveness of an approach involving the transfer of these watercraft cost effectiveness of an approach involving the transfer of these watercraft
compare to that of the Navy’s baseline approach of meeting the LAW program’s compare to that of the Navy’s baseline approach of meeting the LAW program’s
requirements through the acquisition of 28 to 30 new LAWs? requirements through the acquisition of 28 to 30 new LAWs?
 What would be the potential industrial-base implications of using transferred  What would be the potential industrial-base implications of using transferred
watercraft to meet at least some portion of the LAW program’s operational watercraft to meet at least some portion of the LAW program’s operational
needs? needs?
46 Walker D. Mills and Joseph Hanacek, “T he US Navy and Marine Corps Should Acquire Army Watercraft,” Defense News, June 22, 2020. Congressional Research Service 19 link to page 24 Navy Light Amphibious Warship (LAW) Program: Background and Issues for Congress Industrial-Base Implications
Another potential oversight issue for Congress concerns the potential industrial-base implications Another potential oversight issue for Congress concerns the potential industrial-base implications
of the LAW program. In recent years, of the LAW program. In recent years, ~~all~~ al Navy amphibious ships have been built by the Navy amphibious ships have been built by the ~~Ingalls~~Ingal s
shipyard of Pascagoula, MS, a part of Huntington shipyard of Pascagoula, MS, a part of Huntington ~~Ingalls~~Ingal s Industries (HII/ Industries (HII/~~Ingalls~~Ingal s). As noted ). As noted
earlier, LAWs could be built by multiple U.S. shipyards,earlier, LAWs could be built by multiple U.S. shipyards,4547 and nine shipyards have expressed and nine shipyards have expressed
interest in the LAW program. Potential oversight questions for Congress include, What interest in the LAW program. Potential oversight questions for Congress include, What
implications might the LAW program have for the distribution of Navy shipbuilding work among implications might the LAW program have for the distribution of Navy shipbuilding work among
U.S. shipyards? How many jobs would the LAW program create at the shipyard that builds the U.S. shipyards? How many jobs would the LAW program create at the shipyard that builds the
ships, at associated supplier firms, and indirectly in surrounding communities? In a situation of ships, at associated supplier firms, and indirectly in surrounding communities? In a situation of
finite defense resources, what impact, if any, would funding the procurement of LAWs have on finite defense resources, what impact, if any, would funding the procurement of LAWs have on
funding availablefunding available for procuring other types of amphibious ships, and thus on workloads and for procuring other types of amphibious ships, and thus on workloads and
employment levels at HII/employment levels at HII/~~Ingalls~~Ingal s, its associated supplier firms, and their surrounding , its associated supplier firms, and their surrounding
communities?communities?4648
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.

~~45 10 U.S.C. §8679 requires that, subject to a presidential waiver for the national security interest, “no vessel to be~~
~~constructed for any of the armed forces, and no major component of the hull or superstructure of any such vessel, may~~
Legislative Activity for FY2021 Summary of Congressional Action on FY2021 Funding Request Table 1 summarizes congressional action on the FY2021 procurement funding request for the LAW program. Table 1. Congressional Action on FY2021 Procurement Funding Request Mil ions of dol ars, rounded to nearest tenth Authorization Appropriation Request HASC SASC Conf. HAC SAC Conf. Research and development 30.0 30.0 0.0 20.0 20.0 30.0 24.0 Source: Table prepared by CRS based on Navy’s FY2021 budget submission, committee and conference reports, and explanatory statements on FY2021 National Defense Authorization Act and FY202 1 DOD Appropriations Act. The funding is requested in Project 4044 (Next Generation Medium Amphibious Ship) of PE (Program Element) 0603563N (Ship Concept Advanced Design), which is line number 45 in the Navy‘s FY2021 research and development account. 47 10 U.S.C. §8679 requires that, subject to a presidential waiver for the national security interest, “no vessel to be construct ed for any of the armed forces, and no major component of the hull or superstructure of any such vessel, may be constructed in a foreign shipyard.” In addition, the paragraph in the annual DOD appropriations act that makes be constructed in a foreign shipyard.” In addition, the paragraph in the annual DOD appropriations act that makes
appropriations for the Navy’s shipbuildingappropriations for the Navy’s shipbuilding account (the Shipbuildingaccount (the Shipbuilding and Conversion, Navy account) typically contains and Conversion, Navy account) typically contains
these provisos: “these provisos: “ … … Provided further, , ~~That~~T hat none of the funds provided under none of the funds provided under this heading for the construction or this heading for the construction or
conversion of any naval vessel to be constructed in shipyards in the United States shall beconversion of any naval vessel to be constructed in shipyards in the United States shall be expended in foreign facilities expended in foreign facilities
for the construction of major components of such vessel: for the construction of major components of such vessel: Provided further, , ~~That~~T hat none of the funds provided under this none of the funds provided under this
heading shall beheading shall be ~~used~~ used for the construction of any naval vessel in foreignfor the construction of any naval vessel in foreign shipyards….” shipyards….”
~~46 Two~~48 T wo observers argue observers argue that shifting the Navy to a fleet architecture that includes a larger proportion of smaller ships that shifting the Navy to a fleet architecture that includes a larger proportion of smaller ships
wouldwould have beneficial impacts on U.S.have beneficial impacts on U.S. ~~shipbuilding~~ shipbuilding industry’s ability to support Navy shipbuildingindustry’s ability to support Navy shipbuilding needs. Seeneeds. See Bryan Bryan
Clark and Clark and ~~Timothy~~T imothy A. Walton, “ A. Walton, “ Shipbuilding SuppliersShipbuilding Suppliers ~~Need More Than~~ Need More T han Market Forces to Stay Afloat Market Forces to Stay Afloat ,” ,” Defense News, ,
May 20, 2020. May 20, 2020.
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link to page 24 link to page 24 link to page 24 link to page 24 Navy Light Amphibious Warship (LAW) Program: Background and Issues for Congress Notes: HASC is House Armed Services Committee; SASC is Senate Armed Services Committee; HAC is House Appropriations Committee; SAC is Senate Appropriations Committee; ~~and Issues for Congress~~

~~Legislative Activity for FY2021~~
~~Summary of Congressional Action on FY2021 Funding Request~~
~~Table 1~~ ~~summarizes congressional action on the FY2021 procurement funding request for the~~
~~LAW program.~~
~~Table 1. Congressional Action on FY2021 Procurement Funding Request~~
~~Millions of dollars, rounded to nearest tenth~~

~~Authorization~~
~~Appropriation~~

~~Request~~
~~HASC~~
~~SASC~~
~~Conf.~~
~~HAC~~
~~SAC~~
~~Conf.~~
~~Research and development~~
~~30.0~~
~~30.0~~
~~0.0~~
~~20.0~~
~~20.0~~
~~30.0~~
~~24.0~~
Source: Table prepared by CRS based on Navy’s FY2021 budget submission, committee and conference
~~reports, and explanatory statements on FY2021 National Defense Authorization Act and FY2021 DOD~~
~~Appropriations Act. The funding is requested in Project 4044 (Next Generation Medium Amphibious Ship) of PE~~
~~(Program Element) 0603563N (Ship Concept Advanced Design), which is line number 45 in the Navy‘s FY2021~~
~~research and development account.~~
Notes: HASC is House Armed Services Committee; SASC is Senate Armed Services Committee; HAC is
~~House Appropriations Committee; SAC 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 level shown in the HASC column of6395, recommended the funding level shown in the HASC column of Table 1.
H.Rept. 116-442 states H.Rept. 116-442 states
Utilization of Smaller Vessels in Indo-Pacific Area of Operations Utilization of Smaller Vessels in Indo-Pacific Area of Operations
The committee remains concerned that the Navy has yet to provide an updated shipbuilding The committee remains concerned that the Navy has yet to provide an updated shipbuilding
plan as required by section 231 of title 10, United States Code, or a briefing on the updated plan as required by section 231 of title 10, United States Code, or a briefing on the updated
Integrated Force Structure Assessment. Without the requisite information, the committee Integrated Force Structure Assessment. Without the requisite information, the committee
is unable to properly assess whether vessels smaller than 200 meters in length may have a is unable to properly assess whether vessels smaller than 200 meters in length may have a
forward deployed mission set, such as supporting Expeditionary Advanced Base forward deployed mission set, such as supporting Expeditionary Advanced Base
Operations. Therefore, the committee directs the Chief of Naval Operations to provide a Operations. Therefore, the committee directs the Chief of Naval Operations to provide a
briefing to the House Committee on Armed Services notbriefing to the House Committee on Armed Services not later than February 1, 2021, on later than February 1, 2021, on
thethe ~~feasibility of utilizing smaller vessels in the Indo-Pacific to patrol coastal areas~~ feasibility of utilizing smaller vessels in the Indo-Pacific to patrol coastal areas and and
enhance presence in a contested environment. (Page 216) enhance presence in a contested environment. (Page 216)
Section 1028 of H.R. 6395 as reported by the committee states of H.R. 6395 as reported by the committee states
SEC. 1028. REPORT ON IMPLEMENTATION SEC. 1028. REPORT ON IMPLEMENTATION OF COMMANDANT’SOF COMMANDANT’S PLANNING PLANNING
GUIDANCE. GUIDANCE.
(a) IN GENERAL.—Not later than 180 days after the date of the enactment of this Act, the (a) IN GENERAL.—Not later than 180 days after the date of the enactment of this Act, the
Secretary of Defense shall submit to the congressional defense committees a report on the Secretary of Defense shall submit to the congressional defense committees a report on the
~~implementation of the~~ implementation of the Commandant’s Planning Guidance.Commandant’s Planning Guidance. ~~Such report shall include~~ Such report shall include a a
detailed description of each of the following: detailed description of each of the following:
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~~(1) The specific number and type of manned littoral ships required to execute~~ (1) The specific number and type of manned littoral ships required to execute such such
Guidance. Guidance.
(2) The role of long-range unmanned surface vessels in the execution of such Guidance. (2) The role of long-range unmanned surface vessels in the execution of such Guidance.
(3) How (3) How ~~platforms referred to~~ platforms referred to in paragraphsin paragraphs (1) and(1) and (2) account(2) account ~~for and interact~~ for and interact with with
ground-based missiles fielded by teams of Marines deployed throughout the Indo-Pacific ground-based missiles fielded by teams of Marines deployed throughout the Indo-Pacific
region. region.
(4) The integrated (4) The integrated naval command andnaval command and ~~control architecture~~ control architecture required to supportrequired to support the the
platforms referred to in paragraphs (1) and (2); platforms referred to in paragraphs (1) and (2);
(5) The (5) The ~~projected cost and any additional resources required to deliver the platforms~~
~~referred to in paragraph (1) and (2) by not later than five years after the date of the~~
~~enactment of this Act.~~
~~(b) FORM OF REPORT.—The report required under this section shall be submitted~~ projected cost and any additional resources required to deliver the platforms referred to in paragraph (1) and (2) by not later than five years after the date of the enactment of this Act. (b) FORM OF REPORT.—The report required under this section shall be submitted in in
unclassified form, but may contain a classified annex. The unclassified report shall be made unclassified form, but may contain a classified annex. The unclassified report shall be made
publicly available. publicly available.
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 level shown in the SASC column 4049, recommended the funding level shown in the SASC column ofof Table 1. The recommended Congressional Research Service 21 link to page 24 Navy Light Amphibious Warship (LAW) Program: Background and Issues for Congress ~~The recommended~~
reduction of $30.0 (the entire requested amount) is for the funds being “early to need.” (Page 505) reduction of $30.0 (the entire requested amount) is for the funds being “early to need.” (Page 505)
Regarding this funding recommendation, S.Rept. 116-236 states (emphasis added): Regarding this funding recommendation, S.Rept. 116-236 states (emphasis added):
Ship concept advanced design
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~~ of which $126.4 million was$126.4 million was for PE 63563N shipfor PE 63563N ship ~~concept~~ concept advanced advanced
design.design.
The committee lacks The committee lacks ~~sufficient~~ sufficient clarity on the capability requirements to support the following ship design efforts: Future Surface Combatant ~~clarity on the capability requirements to support the~~
~~following ship design efforts: Future Surface Combatant~~ (project 2196, $19.1 million), (project 2196, $19.1 million),
next generation medium amphibious ship (project 4044, $30.0 million),, ~~and~~ and next next
generation medium logistics ship (project 4045, $30.0 million).generation medium logistics ship (project 4045, $30.0 million). (Pages 98-99) (Pages 98-99)
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 level shown in the authorization conference column of January 1, 2021, recommends the funding level shown in the authorization conference column of
Table 1. The recommended reduction of $10.0 The recommended reduction of $10.0 ~~million~~mil ion is for “early to need.” (PDF page 4324 of is for “early to need.” (PDF page 4324 of
5217) 5217)
H.Rept. 116-617 states: H.Rept. 116-617 states:
Report on implementation of Commandant’s Planning Guidance
The The ~~House bill contained a~~ House bill contained a provision (sec.provision (sec. ~~1028) that would require the Secretary~~ 1028) that would require the Secretary of of
Defense to submit a report regarding the implementation of the Commandant of the Marine Defense to submit a report regarding the implementation of the Commandant of the Marine
Corps’ Planning Guidance. Corps’ Planning Guidance.
The Senate amendment contained no similar provision. The Senate amendment contained no similar provision.
The House recedes. The House recedes.
The conferees support the Commandant’s Planning Guidance and recognize the potential The conferees support the Commandant’s Planning Guidance and recognize the potential
of the transformational initiatives embodied in this approach. The conferees believe that of the transformational initiatives embodied in this approach. The conferees believe that
betterbetter ~~Marine Corps integration with the Navy is essential to operating~~ Marine Corps integration with the Navy is essential to o perating in a denied in a denied
environment as a stand-in force. The conferees further believe it is essential for the Marine environment as a stand-in force. The conferees further believe it is essential for the Marine
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Corps to reduce the overall weight of force elements and return to a more expeditionary, Corps to reduce the overall weight of force elements and return to a more expeditionary,
temporal posture that is more agile and decisively lethal. temporal posture that is more agile and decisively lethal.
To better examine Marine Corps future force structure and Navy integration requirements To better examine Marine Corps future force structure and Navy integration requirements
to support this effort, the conferees direct the Secretary of the Navy to submit a report to to support this effort, the conferees direct the Secretary of the Navy to submit a report to
the congressional defense committees not later than March 1, 2021, that provides a detailed the congressional defense committees not later than March 1, 2021, that provides a detailed
description of each of the following: description of each of the following:
(1) The (1) The ~~specific number and type of manned littoral ships required to execute such~~
~~Guidance;~~
~~(2) The role of unmanned surface vessels (USVs), particularly long-range USVs, in~~ specific number and type of manned littoral ships required to execute such Guidance; (2) The role of unmanned surface vessels (USVs), particularly long -range USVs, in the the
execution of such Guidance; execution of such Guidance;
(3) How platforms referred to in paragraphs (1) and (2) interact with ground-based Marine (3) How platforms referred to in paragraphs (1) and (2) interact with ground-based Marine
Corps units, including cruise missile units, deployed throughout the Indo-Pacific region; Corps units, including cruise missile units, deployed throughout the Indo-Pacific region;
(4) The integrated (4) The integrated naval command andnaval command and ~~control architecture required to support~~ control architecture required to support the the
platforms referred to in paragraphs (1), (2) and (3); and platforms referred to in paragraphs (1), (2) and (3); and
(5) The projected cost and any additional resources required to deliver the (5) The projected cost and any additional resources required to deliver the ~~platforms~~p latforms and and
capabilities described in paragraphs (1) through (4) by not later than 5 years after the date capabilities described in paragraphs (1) through (4) by not later than 5 years after the date
of the enactment of this Act. of the enactment of this Act.
Congressional Research Service 22 link to page 24 link to page 24 link to page 24 Navy Light Amphibious Warship (LAW) Program: Background and Issues for Congress This report shall be submitted in unclassified form but may contain a classified annex. The This report shall be submitted in unclassified form but may contain a classified annex. The
unclassified report shall be made publicly available. (PDF pages 4024-4025 of 4517) unclassified report shall be made publicly available. (PDF pages 4024-4025 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 level shown in the HAC column of7617, recommended the funding level shown in the HAC column of Table 1. The recommended The recommended
reduction of $10.0 reduction of $10.0 ~~million~~mil ion is for “Next generation medium amphibious ship excess to need.” is for “Next generation medium amphibious ship excess to need.”
(Page 266) (Page 266)
Section 8129 of H.R. 7617 as reported by the committee states of H.R. 7617 as reported by the committee states
Sec. 8129. None of the funds Sec. 8129. None of the funds ~~provided~~ provided in this Act for requirementsin this Act for requirements development, development,
performance specification development, concept design and development, ship performance specification development, concept design and development, ship
configuration development, systems engineering, naval architecture, marine engineering, configuration development, systems engineering, naval architecture, marine engineering,
operations research analysis,operations research analysis, ~~industry studies, preliminary design,~~ industry studies, preliminary design, development ofdevelopment of the the
Detailed Design andDetailed Design and Construction RequestConstruction Request for Proposals solicitation package, or related for Proposals solicitation package, or related
activities for the AS(X) Submarine Tender, T-ARC(X) Cable Laying and Repair Ship, T-activities for the AS(X) Submarine Tender, T-ARC(X) Cable Laying and Repair Ship, T-
AGOS(X) Oceanographic Surveillance Ship, Light Amphibious Warship, Next Generation AGOS(X) Oceanographic Surveillance Ship, Light Amphibious Warship, Next Generation
MediumMedium ~~Amphibious Ship, or Next Generation Medium Logistics Ship may be used~~ Amphibious Ship, or Next Generation Medium Logistics Ship may be used to to
award a new contract for such activities unless these contracts include specifications that award a new contract for such activities unless these contracts include specifications that
all hull, mechanical, and electrical components are manufactured in the United States. all hull, mechanical, and electrical components are manufactured in the United States.
Regarding Section 8129 and certain other provisions, H.Rept. 116-453 states Regarding Section 8129 and certain other provisions, H.Rept. 116-453 states
DOMESTIC MANUFACTURING REQUIREMENTS DOMESTIC MANUFACTURING REQUIREMENTS FOR NAVY SHIPBUILDING FOR NAVY SHIPBUILDING
The Committee consistently has expressed its concern with the Department of the Navy The Committee consistently has expressed its concern with the Department of the Navy
sourcing surface ship components from foreign industry partners rather than promoting a sourcing surface ship components from foreign industry partners rather than promoting a
robust domestic industrial base. To address these concerns, the Committee retains several robust domestic industrial base. To address these concerns, the Committee retains several
provisionsprovisions from fiscal year 2020 and a new provision thatfrom fiscal year 2020 and a new provision that ~~expands~~ expands the domestic the domestic
manufacturingmanufacturing requirement for several classesrequirement for several classes of shipsof ships under development. Absent ~~under development. Absent~~
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stringent contract requirements in these future surface ship classes, the Committee lacks stringent contract requirements in these future surface ship classes, the Committee lacks
confidenceconfidence ~~that the Navy will make the necessary decisions and provide the~~ that the Navy will make the necessary decisions and provide the required required
resources to support a robust domestic industrial base. (Page 13) resources to support a robust domestic industrial base. (Page 13)
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 level shown in the SAC committee released on November 10, 2020, recommended the funding level shown in the SAC
column column ofof Table 1.
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 27, 2020, the Consolidated Appropriations Act, 2021) C of H.R. 133/P.L. 116-260 of December 27, 2020, the Consolidated Appropriations Act, 2021)
provides the funding level shown in the appropriation conference column provides the funding level shown in the appropriation conference column ofof Table 1. The The
reduction of $6.0 reduction of $6.0 ~~million~~mil ion from the requested amount is for “excess to need.” (PDF page 311 of from the requested amount is for “excess to need.” (PDF page 311 of
469) 469)

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Appendix. Proposed Change in Amphibious-Ship
Force Architecture
and EABO This appendix presents This appendix presents ~~excerpts from the July 2019 Commandant’s Planning Guidance document~~
~~that provide~~ additional background information on the proposed change in the additional background information on the proposed change in the amphibious-ship amphibious-ship
force architecture and the force architecture and the ~~operational rationale for the proposed change.~~
EABO-related operational rationale behind it. Proposed Change in Amphibious Ship Force Architecture Regarding the shift to a new amphibious-ship force architecture, the Regarding the shift to a new amphibious-ship force architecture, the July 2019 Commandant’s Planning
Guidance document states in part (emphasis as in the original): states in part (emphasis as in the original):
Our Nation’s Our Nation’s ~~ability to project power and influence beyond its shores is~~ ability to project power and influence beyond its shores is increasingly increasingly
challenged by long-range precisionchallenged by long-range precision fires; expanding air, surface, and subsurface threats; fires; expanding air, surface, and subsurface threats;
and the continued degradation of our amphibious and auxiliary ship readiness. and the continued degradation of our amphibious and auxiliary ship readiness. ~~The~~Th e ability ability
to project and maneuver from strategic distances will likely be detected and contested from to project and maneuver from strategic distances will likely be detected and contested from
the point of embarkation during a major contingency. Our naval expeditionary forces must the point of embarkation during a major contingency. Our naval expeditionary forces must
possess a variety of deployment options, including L-class [amphibious ships] and E-class possess a variety of deployment options, including L-class [amphibious ships] and E-class
[expeditionary ships] ships, but also increasingly look to other available options such as [expeditionary ships] ships, but also increasingly look to other available options such as
unmannedunmanned ~~platforms, stern landing vessels, other ocean-going connectors, and~~ platforms, stern landing vessels, other ocean -going connectors, and smaller smaller
more lethal and more risk-worthy platforms. more lethal and more risk-worthy platforms. We must continue to seek the affordable
and plentiful at the expense of the exquisite and few when conceiving of the future
amphibious portion of the fleet.
We We ~~must also explore new options, such as inter-theater connectors and commercially~~
~~available ships and craft that are smaller and less expensive, thereby increasing the~~
~~affordability and allowing acquisition at a greater quantity. We recognize that we~~ must also explore new options, such as inter-theater connectors and commercially available ships and craft that are smaller and less expensive, thereby increasing the affordability and allowing acquisition at a greater quantity. We recognize that we must must
distribute our forces ashore given the growth of adversary precision strike capabilities, so distribute our forces ashore given the growth of adversary precision strike capabilities, so
it wouldit would ~~be illogical to continue to concentrate our forces on a few large ships. The~~
~~adversary will quickly recognize that striking~~ be illogical to continue to concentrate our forces on a few large ships. The adversary will quickly recognize that striking while concentrated (aboardwhile concentrated (aboard ship)ship) is the is the
preferred option. We need to change this calculus with a new fleet design of smaller, more preferred option. We need to change this calculus with a new fleet design of smaller, more
lethal,lethal, ~~and~~ and more risk-worthymore risk-worthy ~~platforms. We must be fully integrated with the Navy to~~
~~develop a vision and a new fleet~~ platforms. We must be fully integrated with the Navy to develop a vision and a new fleet architecture that can be successfularchitecture that can be successful ~~against our~~ against our peer peer
adversaries while also maintaining affordability. To achieve this difficult task, the Navy adversaries while also maintaining affordability. To achieve this difficult task, the Navy
and Marine Corps must ensure larger surface combatants possess mission agility across sea and Marine Corps must ensure larger surface combatants possess mission agility across sea
control, littoral, and amphibious operations, while we concurrently expand the quantity of control, littoral, and amphibious operations, while we concurrently expand the quantity of
more specialized manned and unmanned platforms…. more specialized manned and unmanned platforms….
We will no longer use a “2.0 MEB requirement” as the foundation for our arguments
regarding amphibious ship building, to determine the requisite capacity of vehicles
or other capabilities, or as pertains to the Maritime Prepositioning Force. We will no
longer reference the 38-ship requirement memo from 2009, or the 2016 Force
Structure Assessment, as the basis for our arguments and force structure
justifications. The ongoing 2019 Force Structure Assessment will inform the amphibious The ongoing 2019 Force Structure Assessment will inform the amphibious
requirementsrequirements ~~based upon~~ based upon this guidance.this guidance. The global The global ~~options~~ o ptions for amphibs [types of for amphibs [types of
amphibious ships] include many more options than simply LHAs, LPDs, and LSDs. I will amphibious ships] include many more options than simply LHAs, LPDs, and LSDs. I will
workwork ~~closely with the Secretary of the Navy and Chief of Naval Operations (CNO)~~ closely with the Secretary of the Navy and Chief of Naval Operations (CNO) to to
ensure there are adequate numbers of the right types of ships, with the right capabilities, to ensure there are adequate numbers of the right types of ships, with the right capabilities, to
meet national requirements. meet national requirements.
I do I do ~~not believe joint forcible entry operations (JFEO) are irrelevant or an~~ not believe joint forcible entry operations (JFEO) are irrelevant or an operational operational
anachronism; however, we must acknowledge that different approaches are required given anachronism; however, we must acknowledge that different approaches are required given
the proliferation of anti-access/area denial (A2AD) threat capabilities in mutually contested the proliferation of anti-access/area denial (A2AD) threat capabilities in mutually contested
spaces. Visions of a massed naval armada nine nautical miles off-shore in the South China spaces. Visions of a massed naval armada nine nautical miles off-shore in the South China
Sea preparingSea preparing ~~to launch the landing force~~ to launch the landing force in swarms of ACVs [amphibiousin swarms of ACVs [amphibious combat combat
vehicles],vehicles], LCUs [utility landingLCUs [utility landing craft], andcraft], and LCACs [air-cushionedLCACs [air-cushioned ~~landing craft] are~~
~~impractical and unreasonable. We must accept the realities created by the proliferation of~~
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impractical and unreasonable. We must accept the realities created by the proliferation of precision long-range fires, mines, and other smart-weapons, and seek innovative ways to precision long-range fires, mines, and other smart-weapons, and seek innovative ways to
overcomeovercome ~~those threat capabilities. I encourage experimentation with lethal long~~ those threat capabilities. I encourage experimentation with lethal long -range -range
unmanned systems capable of traveling 200 nautical miles, penetrating into the adversary unmanned systems capable of traveling 200 nautical miles, penetrating into the adversary
enemy threat ring, and crossing the shoreline—causing the adversary to allocate resources enemy threat ring, and crossing the shoreline—causing the adversary to allocate resources
to eliminate the threat, create dilemmas, and further create opportunities for fleet maneuver. to eliminate the threat, create dilemmas, and further create opportunities for fleet maneuver.
We cannot wait to identify solutionsWe cannot wait to identify solutions to our mine countermeasure needs, and must make to our mine countermeasure needs, and must make
this a priority for our future force development efforts…. this a priority for our future force development efforts….
Over the coming months, Over the coming months, we will releasewe will release a new concepta new concept in supportin support of the Navy’s of the Navy’s
Distributed Maritime Operations (DMO) Concept and the NDS called – Stand-in Forces. Distributed Maritime Operations (DMO) Concept and the NDS called – Stand-in Forces.
The Stand-in Forces concept is designed to restore the strategic initiative to naval forces The Stand-in Forces concept is designed to restore the strategic initiative to naval forces
andand ~~empower our~~ empower our allies andallies and ~~partners to successfully confront regional hegemons that~~
~~infringe on their territorial boundaries and interests.~~ ~~Stand-in Forces are designed~~ partners to successfully confront regional hegemons that infringe on their territorial boundaries and interests. Stand-in Forces are designed to
generate technically disruptive, tactical stand-in engagements that confront aggressor
naval forces with an array of low signature, affordable, and risk-worthy platforms
and payloads. Stand-in forces take advantage of the relative strength of the contemporary Stand-in forces take advantage of the relative strength of the contemporary
defense and rapidly-emerging new technologies to create an integrated maritime defense defense and rapidly-emerging new technologies to create an integrated maritime defense
that is optimized to operate in close and confined seas in defiance of adversary long-range that is optimized to operate in close and confined seas in defiance of adversary long-range
precision “stand-off capabilities.” precision “stand-off capabilities.”
Creating Creating ~~new capabilities that intentionally initiate stand-in engagements is a disruptive~~
new capabilities that intentionally initiate stand-in engagements is a disruptive “button hook” in force development that runs counter to the action that our adversaries “button hook” in force development that runs counter to the action that our adversaries
anticipate.anticipate. ~~Rather than heavily investing in expensive and exquisite capabilities~~ Rather than heavily investing in expensive and exquisite capabilities that that
regional aggressors have optimized their forces to target, naval forces will persist forward regional aggressors have optimized their forces to target, naval forces will persist forward
with many smaller, low signature, affordable platforms that can economically host a dense with many smaller, low signature, affordable platforms that can economically host a dense
array of lethal and nonlethal payloads. array of lethal and nonlethal payloads.
By exploiting the technical revolution in autonomy, advanced manufacturing, and artificial By exploiting the technical revolution in autonomy, advanced manufacturing, and artificial
intelligence, the naval forces can create many new risk-worthy unmanned and minimally-intelligence, the naval forces can create many new risk-worthy unmanned and minimally-
mannedmanned platforms that can be employedplatforms that can be employed in stand-inin stand-in ~~engagements~~ engagements to create tactical to create tactical
dilemmas that adversaries will confront when attacking our allies and forces forward.dilemmas that adversaries will confront when attacking our allies and forces forward.4749 EABO
Regarding EABO, the Regarding EABO, the Commandant’s Planning Guidance states the following (emphasis as in the states the following (emphasis as in the
original): original):
The The 2016 2016 Marine ~~Corps Operating Concept~~ ~~(MOC) predates the current set of~~ Corps Operating Concept (MOC) predates the current set of national national
strategy and guidance documents, but it was prescient in many ways. It directed partnering strategy and guidance documents, but it was prescient in many ways. It directed partnering
with the Navy to develop two concepts, Littoral Operations in a Contested Environment with the Navy to develop two concepts, Littoral Operations in a Contested Environment
(LOCE) and(LOCE) and ~~Expeditionary Advanced Base Operations (EABO) that nest exceptionally~~
~~well with the current strategic guidance. It is time to move beyond the MOC itself,~~
~~however, and partner with the Navy to complement LOCE and EABO with~~ Expeditionary Advanced Base Operations (EABO) that nest exceptionaly well with the current strategic guidance. It is time to move beyond the MOC itself, however, and partner with the Navy to complement LOCE and EABO with classified, classified,
threat-specific operating concepts that describe how naval forces will conduct the range of threat-specific operating concepts that describe how naval forces will conduct the range of
missions articulated in our strategic guidance…. missions articulated in our strategic guidance….

~~47 U.S.~~ 49 U.S. Marine Corps, Marine Corps, Commandant’s Planning Guidance, 38th Commandant of the Marine Corps, undated, released , undated, released
JulyJuly 2019, pp. 4-5, 10. 2019, pp. 4-5, 10.
Congressional Research Service Congressional Research Service
25 25

Navy Light Amphibious Warship (LAW) Program: Background and Issues for Congress

EABO ~~complement~~ complement the Navy’s Distributed Maritime Operations Concept ~~and~~ and will
inform how we approach missions against peer adversaries …. EABO are driven by the aforementioned adversary deployment of long -range precision fires designed to support a strategy of “counter-intervention” directed against U.S. and coalition forces. EABO, as an operational concept, enables the naval force to ….
~~EABO are driven by the aforementioned adversary deployment of long-range precision~~
~~fires designed to support a strategy of “counter-intervention” directed against U.S. and~~
~~coalition forces. EABO, as an operational concept, enables the naval force to~~ persist persist
forward within the arc of adversary long-range precision fires to support our treaty partners forward within the arc of adversary long-range precision fires to support our treaty partners
with combat credible forces on a much more resilient and difficult to target forward basing with combat credible forces on a much more resilient and difficult to target forward basing
infrastructure.infrastructure. ~~EABO are designed to restore force resiliency and enable the~~ EABO are designed to restore force resiliency and enable the persistent persistent
naval forward presence that has long been the hallmark of naval forces. Most significantly, naval forward presence that has long been the hallmark of naval forces. Most significantly,
EABO reverse the cost imposition that determined adversaries seek to impose on the joint EABO reverse the cost imposition that determined adversaries seek to impose on the joint
force. EABO guide an apt and appropriate adjustment in future naval force development force. EABO guide an apt and appropriate adjustment in future naval force development
toto ~~obviate the significant investment our adversaries have made in long-range~~ obviate the significant investment our adversaries have made in long -range precision precision
fires. Potential adversaries intend to target our forward fixed and vulnerable bases, as fires. Potential adversaries intend to target our forward fixed and vulnerable bases, as ~~well~~
wel as deep water ports, long runways, large signature platforms, and ships. By developing a as deep water ports, long runways, large signature platforms, and ships. By developing a
new expeditionary naval force structure that is not dependent on concentrated, vulnerable, new expeditionary naval force structure that is not dependent on concentrated, vulnerable,
andand ~~expensive forward infrastructure and platforms, we will frustrate enemy efforts~~ expensive forward infrastructure and platforms, we will frustrate enemy efforts to to
separate U.S. Forces from our allies and interests. EABOseparate U.S. Forces from our allies and interests. EABO enable naval forces to partner enable naval forces to partner
and persist forward to control and deny contested areas where legacy naval forces cannot and persist forward to control and deny contested areas where legacy naval forces cannot
be prudently employed without accepting disproportionate risk…. be prudently employed without accepting disproportionate risk….
In February In February ~~of 2019, the Commandant and Chief~~ of 2019, the Commandant and Chief of Naval Operationsof Naval Operations co co -signed-signed the the
concept for EABO. The ideas contained in this document are foundational to our future concept for EABO. The ideas contained in this document are foundational to our future
force development efforts and are applicable in multiple scenarios.force development efforts and are applicable in multiple scenarios.48

~~Author Information~~

~~Ronald O'Rourke~~

~~Specialist in Naval Affairs~~
50 A February 2021 Marine Corps tentative manual on EABO defines EABO as follows: EABO are a form of expeditionary warfare that involves the employment of mobile, low-signature, persistent, and relatively easy to maintain and sustain naval expeditionary forces from a series of austere, temporary locations ashore or inshore within a contested or potentially contested maritime area in order to conduct sea denial, support sea control, or enable fleet sustainment. EABO support the projection of naval power by integrating with and supporting the larger naval campaign. Expeditionary operations imply austere conditions, forward deployment, and projection of power. EABO are distinct from other expeditionary operations in that forces conducting them combine various forms of operations to persist within the reach of adversary lethal and nonlethal effects. It is critical that the composition, distribution, and disposition of forces executing EABO limit the adversary’s ability to target them, engage them with fires and other effects, and otherwise influence their activities. Missions of EABO include:  Support sea control operations;  Conduct sea denial operations within the littorals;  Contribute to maritime domain awareness;  Provide forward command, control, communications, computers, combat systems, intelligence, surveillance, reconnaissance, targeting (C5ISRT), and counter-C5ISRT capability;  Provide forward sustainment. 50 U.S. Marine Corps, Commandant’s Planning Guidance, 38th Commandant of the Marine Corps, undated, released July 2019, pp. 9, 11, 19. See also Jim Lacey, “T he ‘Dumbest Concept Ever’ Just Might Win Wars,” War on the Rocks, July 29, 2019; Megan Eckstein, “How to Seize Islands, Set Up a Forward Refueling Point: Marine Corps Recipes for Expeditionary Operations,” USNI News, September 13, 2019. Congressional Research Service 26 Navy Light Amphibious Warship (LAW) Program: Background and Issues for Congress EABO tasks include:  Conduct surveillance and reconnaissance;  Conduct operations in the information environment;  Conduct screen/guard/cover;  Deny or control key maritime terrain;  Conduct surface warfare operations;  Conduct air and missile defense;  Conduct strike operations;  Conduct antisubmarine warfare;  Conduct sustainment operations;  Conduct forward arming and refueling point (FARP) operations. FMF formations may execute these tasks across the competition continuum both above and below the threshold of violence. In the former case, they are normally conducted to deny an adversary access to adjacent battlespace or to support a more comprehensive effort to establish sea control. In the latter, they are often conducted with the goal of deterring the enemy while preparing for conflict if deterrence fails …. EABO provide engagement capabilities throughout the competition continuum. During competition below the threshold of violence, EABO engage allies and partners, preserve access, and shape the theater for future operations. EABO also enables stand-in engagement capabilities by the persistent posturing of littoral forces within a potential adversary’s weapons engagement zone (WEZ). During armed conflict, the combination of stand-in and stand-off engagement capabilities… places the adversary on the horns of a dilemma: while the adversary seeks to discover and engage friendly stand-off forces, he exposes himself to the sensing, nonlethal, and lethal capabilities of stand-in forces…. The assigned mission sets within EABO are conducted within a joint and coalition framework, as part of not merely an interoperable, but an integrated naval force. Task-organized Marine and Navy units project naval power through EABO by fusing their landward and seaward roles…. A stand-in force executing EABO is strategically cost-effective by virtue of its ability to undermine a potential adversary’s cost-imposition strategy. Potential adversaries are investing in large numbers of comparatively inexpensive systems of adequate lethality, extended range, and greater precision to hold at risk the US military’s expensive, sophisticated, and relatively few multimission platforms. Forces executing EABO are small, numerous, dispersed, and relatively inexpensive and difficult to target, thus inverting an adversary’s cost-benefit calculation when deciding whether to engage and upsetting the cost-imposition strategy.51 51 Department of the Navy, Headquarters, United States Marine Corps, Tentative Manual for Expeditionary Advanced Base Operations, February 2021, pp. 1-3 to 1-5. Congressional Research Service 27 Navy Light Amphibious Warship (LAW) Program: Background and Issues for Congress Author Information Ronald O'Rourke Specialist in Naval Affairs

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~~48 U.S. Marine Corps, Commandant’s Planning Guidance, 38th Commandant of the Marine Corps, undated, released~~
~~July 2019, pp. 9, 11, 19. See also Jim Lacey, “The ‘Dumbest Concept Ever’ Just Might Win Wars,” War on the Rocks,~~
~~July 29, 2019; Megan Eckstein, “How to Seize Islands, Set Up a Forward Refueling Point: Marine Corps Recipes for~~
~~Expeditionary Operations,” USNI News, September 13, 2019.~~
~~Congressional Research Service~~
~~R46374 · VERSION 17 · UPDATED~~
26 Congressional Research Service R46374 · VERSION 19 · UPDATED 28