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

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Navy Large Unmanned Surface and Undersea
March March 1725, 2021 , 2021
Vehicles: Background and Issues for Congress
Ronald O'Rourke
The Navy in FY2021 and beyond wants to develop and procure three types of large unmanned The Navy in FY2021 and beyond wants to develop and procure three types of large unmanned
Specialist in Naval Affairs Specialist in Naval Affairs
vehicles (UVs). These large UVs are called Large Unmanned Surface Vehicles (LUSVs), vehicles (UVs). These large UVs are called Large Unmanned Surface Vehicles (LUSVs),

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

for these large UVs and their enabling technologies. As part of its action on the Navy’s proposed for these large UVs and their enabling technologies. As part of its action on the Navy’s proposed
FY2021 budget, Congress provided $238.9 million. FY2021 budget, Congress provided $238.9 million.
The Navy wants to acquire these large UVs as part of an effort to shift the Navy to a more distributed fleet architecture. The Navy wants to acquire these large UVs as part of an effort to shift the Navy to a more distributed fleet architecture.
Compared to the current fleet architecture, this more distributed architecture is to include proportionately fewer large surface Compared to the current fleet architecture, this more distributed architecture is to include proportionately fewer large surface
combatants (i.e., cruisers and destroyers), proportionately more small surface combatants (i.e., frigates and Littoral Combat combatants (i.e., cruisers and destroyers), proportionately more small surface combatants (i.e., frigates and Littoral Combat
Ships), and the addition of significant numbers of large UVs. The Navy wants to employ accelerated acquisition strategies for Ships), and the addition of significant numbers of large UVs. The Navy wants to employ accelerated acquisition strategies for
procuring these large UVs, so as to get them into service more quickly. The Navy’s desire to employ these accelerated procuring these large UVs, so as to get them into service more quickly. The Navy’s desire to employ these accelerated
acquisition strategies can be viewed as an expression of the urgency that the Navy attaches to fielding large UVs for meeting acquisition strategies can be viewed as an expression of the urgency that the Navy attaches to fielding large UVs for meeting
future military challenges from countries such as China. future military challenges from countries such as China.
The Navy envisions LUSVs as being 200 feet to 300 feet in length and having full load displacements of 1,000 tons to 2,000 The Navy envisions LUSVs as being 200 feet to 300 feet in length and having full load displacements of 1,000 tons to 2,000
tons. The Navy wants LUSVs to be low-cost, high-endurance, reconfigurable ships based on commercial ship designs, with tons. The Navy wants LUSVs to be low-cost, high-endurance, reconfigurable ships based on commercial ship designs, with
ample capacity for carrying various modular payloads—particularly anti-surface warfare (ASuW) and strike payloads, ample capacity for carrying various modular payloads—particularly anti-surface warfare (ASuW) and strike payloads,
meaning principally anti-ship and land-attack missiles. Although referred to as UVs, LUSVs might be more accurately meaning principally anti-ship and land-attack missiles. Although referred to as UVs, LUSVs might be more accurately
described as optionally or lightly manned ships, because they might sometimes have a few onboard crew members, described as optionally or lightly manned ships, because they might sometimes have a few onboard crew members,
particularly in the nearer term as the Navy works out LUSV enabling technologies and operational co ncepts. particularly in the nearer term as the Navy works out LUSV enabling technologies and operational co ncepts.
The Navy defines MUSVs as being 45 feet to 190 feet long, with displacements of roughly 500 tons . The Navy wants The Navy defines MUSVs as being 45 feet to 190 feet long, with displacements of roughly 500 tons . The Navy wants
MUSVs, like LUSVs, to be low-cost, high-endurance, reconfigurable ships that can accommodate various payloads. Initial MUSVs, like LUSVs, to be low-cost, high-endurance, reconfigurable ships that can accommodate various payloads. Initial
payloads for MUSVs are to be intelligence, surveillance and reconnaissance (ISR) payloads and electronic warfare (EW) payloads for MUSVs are to be intelligence, surveillance and reconnaissance (ISR) payloads and electronic warfare (EW)
systems. The Navy is pursuing the MUSV program as a rapid prototyping effort under what is known as Section 804 systems. The Navy is pursuing the MUSV program as a rapid prototyping effort under what is known as Section 804
acquisition authority. The first MUSV prototype was funded in FY2019 and the Navy wants fund the second prototype in acquisition authority. The first MUSV prototype was funded in FY2019 and the Navy wants fund the second prototype in
FY2023. On July 13, 2020, the Navy announced that it had awarded “a $34,999,948 contract to L3 Technologies, Inc. for the FY2023. On July 13, 2020, the Navy announced that it had awarded “a $34,999,948 contract to L3 Technologies, Inc. for the
development of a single Medium Unmanned Surface Vehicle (MUSV) prototype, with options to procure up to eight development of a single Medium Unmanned Surface Vehicle (MUSV) prototype, with options to procure up to eight
additional MUSVs.” additional MUSVs.”
The first five XLUUVs were funded in FY2019; they are being built by Boeing. The Navy wants procure additional The first five XLUUVs were funded in FY2019; they are being built by Boeing. The Navy wants procure additional
XLUUVs at a rate of two per year starting in FY2023. The Navy’s FY2021 budget submission did not request funding for the XLUUVs at a rate of two per year starting in FY2023. The Navy’s FY2021 budget submission did not request funding for the
procurement of additional XLUUVs in FY2021 or FY2022. procurement of additional XLUUVs in FY2021 or FY2022.
The Navy’s large UV programs pose a number of oversight issues for Congress, including issues relating to the analytical The Navy’s large UV programs pose a number of oversight issues for Congress, including issues relating to the analytical
basis for the more distributed fleet architecture; the Navy’s accelerated acquisition strategies for these programs; technical, basis for the more distributed fleet architecture; the Navy’s accelerated acquisition strategies for these programs; technical,
schedule, and cost risk in the programs; the proposed annual procurement rates for the programs; the industrial base schedule, and cost risk in the programs; the proposed annual procurement rates for the programs; the industrial base
implications of the programs; potential implications for miscalculation or escalation at sea; the personnel implications of the implications of the programs; potential implications for miscalculation or escalation at sea; the personnel implications of the
programs; and whether the Navy has accurately priced the work it is proposing to do on the programs. programs; and whether the Navy has accurately priced the work it is proposing to do on the programs.
In marking up the Navy’s proposed FY2020 and FY2021 budgets, some of the congressional defense committees expressed In marking up the Navy’s proposed FY2020 and FY2021 budgets, some of the congressional defense committees expressed
concerns over whether the Navy’s accelerated acquisition strategies provided enough time to adequately develop concepts of concerns over whether the Navy’s accelerated acquisition strategies provided enough time to adequately develop concepts of
operations and key technologies for these large UVs, particularly the LUSV. In response to the markups to its FY2020 operations and key technologies for these large UVs, particularly the LUSV. In response to the markups to its FY2020
budget, the Navy’s FY2021 budget proposed modifying the acquisition strategy for the LUSV program so as to provide more budget, the Navy’s FY2021 budget proposed modifying the acquisition strategy for the LUSV program so as to provide more
time for developing operational concepts and key technologies before entering into serial production of d eployable units. time for developing operational concepts and key technologies before entering into serial production of d eployable units.
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Navy Large Unmanned Surface and Undersea Vehicles

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

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

than manned ships and aircraft because their designs do not need to incorporate spaces and than manned ships and aircraft because their designs do not need to incorporate spaces and
support equipment for onboard human operators. UVs can be particularly suitable for long-support equipment for onboard human operators. UVs can be particularly suitable for long-
duration missions that might tax the physical endurance of onboard human operators, or missions duration missions that might tax the physical endurance of onboard human operators, or missions
that pose a high risk of injury, death, or capture of onboard human operators. Consequently UVs that pose a high risk of injury, death, or capture of onboard human operators. Consequently UVs
are sometimes said to be particularly suitable for so-cal ed “three D” missions, meaning missions are sometimes said to be particularly suitable for so-cal ed “three D” missions, meaning missions
that are “dull, dirty, or dangerous.”4 that are “dull, dirty, or dangerous.”4
The Navy has been developing and experimenting with various types of UVs for many years, and The Navy has been developing and experimenting with various types of UVs for many years, and
has transitioned some of these efforts (particularly those for UAVs) into procurement programs. has transitioned some of these efforts (particularly those for UAVs) into procurement programs.
The Department of the Navy states, for example, that its inventory of 4,094 aircraft at the end of The Department of the Navy states, for example, that its inventory of 4,094 aircraft at the end of
FY2019 included 99 UAVs, that its projected inventory of 3,912 aircraft at the end of FY2020 FY2019 included 99 UAVs, that its projected inventory of 3,912 aircraft at the end of FY2020
wil include 45 UVs, and that its projected inventory of 4,075 aircraft at the end of FY2021 wil wil include 45 UVs, and that its projected inventory of 4,075 aircraft at the end of FY2021 wil
include 57 UVs.5 Even so, some observers have occasional y expressed dissatisfaction with what include 57 UVs.5 Even so, some observers have occasional y expressed dissatisfaction with what
they view as the Navy’s slow pace in transitioning UV development efforts into programs for they view as the Navy’s slow pace in transitioning UV development efforts into programs for
procuring UVs in quantity and integrating them into the operational fleet. procuring UVs in quantity and integrating them into the operational fleet.
March 2021 Campaign Framework Document for UVs
On March 16, 2021, the Department of the Navy released a “campaign framework” (i.e., overal On March 16, 2021, the Department of the Navy released a “campaign framework” (i.e., overal
strategy) document for developing and acquiring Navy and Marine UVs of various types and strategy) document for developing and acquiring Navy and Marine UVs of various types and
integrating them into U.S. naval operations.6 integrating them into U.S. naval operations.6
Navy USV and UUV Categories
As shown i As shown in Figure 1 aand Figure 2, the Navy organizes its USV acquisition programs into four , the Navy organizes its USV acquisition programs into four
size-based categories that the Navy cal s large, medium, smal , and very smal , and its UUV size-based categories that the Navy cal s large, medium, smal , and very smal , and its UUV
acquisition programs similarly into four size-based categories that the Navy cal s extra-large, acquisition programs similarly into four size-based categories that the Navy cal s extra-large,
large, medium, and smal . The large UVs discussed in this CRS report fal into the top two USV large, medium, and smal . The large UVs discussed in this CRS report fal into the top two USV
categories i categories in Figure 1 and the top UUV category iand the top UUV category in Figure 2.
The smal er UVs shown in the other categories The smal er UVs shown in the other categories of Figure 1 a and Figure 2, which are not covered , which are not covered
in this report, can be deployed from manned Navy ships and submarines to extend the operational in this report, can be deployed from manned Navy ships and submarines to extend the operational
reach of those ships and submarines. The large UVs covered in this CRS report, in contrast, are reach of those ships and submarines. The large UVs covered in this CRS report, in contrast, are
more likely to be deployed directly from pier to perform missions that might otherwise be more likely to be deployed directly from pier to perform missions that might otherwise be
assigned to manned ships and submarines. assigned to manned ships and submarines.

4 See, for example, Ann Diab, “ Drones Perform the Dull, Dirty, or Dangerous Work,” T ech.co, November 12, 2014; 4 See, for example, Ann Diab, “ Drones Perform the Dull, Dirty, or Dangerous Work,” T ech.co, November 12, 2014;
Bonnie Robinson, “ Dull, Dirty, Dangerous Mission? Send in the Robot Vehicle,” U.S. Army, August 20, 2015; Bonnie Robinson, “ Dull, Dirty, Dangerous Mission? Send in the Robot Vehicle,” U.S. Army, August 20, 2015;
Bernard Marr, “ T he 4 Ds Of Robotization: Dull, Dirty, Dangerous And DearBernard Marr, “ T he 4 Ds Of Robotization: Dull, Dirty, Dangerous And Dear ,” ,” Forbes, October 16, 2017. , October 16, 2017.
5 Department of the Navy, 5 Department of the Navy, Highlights of the Department of the Navy FY 2021 Budget, Figure 3.7 on page 3-7. , Figure 3.7 on page 3-7.
6 Department of the Navy, 6 Department of the Navy, Department of the Navy Unmanned Campaign Framework, March 16, 2021, 37 pp. See also , March 16, 2021, 37 pp. See also
Megan Eckstein, “ Navy, Marines Unveil How T hey Will Buy and Operate Future Pilotless Aircraft and Crewless Megan Eckstein, “ Navy, Marines Unveil How T hey Will Buy and Operate Future Pilotless Aircraft and Crewless
Ships,” Ships,” USNI News, March 16, 2021; Gina Harkins, “ Why You Should T rust Drone Ships and Unmanned T ech, , March 16, 2021; Gina Harkins, “ Why You Should T rust Drone Ships and Unmanned T ech,
According to the Navy,” According to the Navy,” Military.com , March 16, 2021; Stew Magnuson, “ Just In: Navy, Marine Corps Unmanned , March 16, 2021; Stew Magnuson, “ Just In: Navy, Marine Corps Unmanned
Framework Calls For ‘Capabilities’ Over Platforms,” Framework Calls For ‘Capabilities’ Over Platforms,” National Defense, March 16, 2021; Seapower Staff, “ Navy, , March 16, 2021; Seapower Staff, “ Navy,
Marine Corps Release Unmanned Campaign PlanMarine Corps Release Unmanned Campaign Plan ,” ,” Seapower, March 16, 2021; Jordan Wolman, “ Looking to the , March 16, 2021; Jordan Wolman, “ Looking to the
Future of Combat and Competition, Navy Releases Much-Anticipated Campaign Plan on Unmanned Systems,” Future of Combat and Competition, Navy Releases Much-Anticipated Campaign Plan on Unmanned Systems,” Inside
Defense, March 16, 2021. , March 16, 2021.
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Figure 1. Navy USV Systems Vision

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

Source: Slide 2 of briefing by Captain Pete Smal , Program Manager, Unmanned Maritime Systems (PMS 406), Slide 2 of briefing by Captain Pete Smal , Program Manager, Unmanned Maritime Systems (PMS 406),
entitled “Unmanned Maritime Systems Update,” January 15, 2019, accessed May 22, 2019, at entitled “Unmanned Maritime Systems Update,” January 15, 2019, accessed May 22, 2019, at
https://www.navsea.navy.mil/Portals/103/Documents/Exhibits/SNA2019/UnmannedMaritimeSys-Smal .pdf?ver=https://www.navsea.navy.mil/Portals/103/Documents/Exhibits/SNA2019/UnmannedMaritimeSys-Smal .pdf?ver=
2019-01-15-165105-297. 2019-01-15-165105-297.
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Large UVs and Navy Ship Count
Because the large UVs covered in this report can be deployed directly from pier to perform Because the large UVs covered in this report can be deployed directly from pier to perform
missions that might otherwise be assigned to manned ships and submarines, some observers have missions that might otherwise be assigned to manned ships and submarines, some observers have
a raised a question as to whether the large UVs covered in this report should be included in the a raised a question as to whether the large UVs covered in this report should be included in the
top-level count of the number of ships in the Navy. Department of Defense (DOD) officials since top-level count of the number of ships in the Navy. Department of Defense (DOD) officials since
late 2019 have sent mixed signals on this question, but most recently have indicated that a new late 2019 have sent mixed signals on this question, but most recently have indicated that a new
Navy force-level goal that wil replace the Navy’s current 355-ship force-level goal (see next Navy force-level goal that wil replace the Navy’s current 355-ship force-level goal (see next
section) wil include large unmanned vehicles (UVs).7 section) wil include large unmanned vehicles (UVs).7
Part of More Distributed Navy Fleet Architecture
The Navy and DOD since 2019 have been working to develop a new Navy force-level goal to The Navy and DOD since 2019 have been working to develop a new Navy force-level goal to
replace the Navy’s current 355-ship force-level goal. This new Navy force-level goal is expected replace the Navy’s current 355-ship force-level goal. This new Navy force-level goal is expected
to introduce a change in fleet architecture, meaning basic the types of ships that make up the to introduce a change in fleet architecture, meaning basic the types of ships that make up the
Navy and how these ships are used in combination with one another to perform Navy missions. Navy and how these ships are used in combination with one another to perform Navy missions.
This new fleet architecture is expected to be more distributed than the fleet architecture reflected This new fleet architecture is expected to be more distributed than the fleet architecture reflected
in the 355-ship goal or previous Navy force-level goals. In particular, the new fleet architecture is in the 355-ship goal or previous Navy force-level goals. In particular, the new fleet architecture is
expected to feature expected to feature
 a smal er proportion of larger ships (such as large-deck aircraft carriers, cruisers,  a smal er 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 smal er ships (such as frigates, corvettes, smal er  a larger proportion of smal er ships (such as frigates, corvettes, smal er
amphibious ships, smal er resupply ships, and perhaps smal er aircraft carriers); amphibious ships, smal er resupply ships, and perhaps smal er 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 wil be either lightly manned, optional y manned, or unmanned, as wel as that wil be either lightly manned, optional y manned, or unmanned, as wel as
large unmanned underwater vehicles (UUVs). large unmanned underwater vehicles (UUVs).
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

7 In December 2019, it was reported that the Office of Management and Budget (OMB) had directed the Navy to 7 In December 2019, it was reported that the Office of Management and Budget (OMB) had directed the Navy to
include in its FY2021 budget submission a legislative proposal to formally change theinclude in its FY2021 budget submission a legislative proposal to formally change the definition of which ships count definition of which ships count
toward the quoted size of the Navy (known as the number of battle force ships) to include not only manned ships, but toward the quoted size of the Navy (known as the number of battle force ships) to include not only manned ships, but
also large UVs that operate essentially as unmanned ships. (See Justin Katz, “ OMB: Pentagon Must Submit Proposal to also large UVs that operate essentially as unmanned ships. (See Justin Katz, “ OMB: Pentagon Must Submit Proposal to
‘Redefine’ Battleforce Ships to Include Unmanned Vehicles,” ‘Redefine’ Battleforce Ships to Include Unmanned Vehicles,” Inside Defense, December 20, 2019; Joseph T revithick, , December 20, 2019; Joseph T revithick,
“White House Asks Navy T o Include New Unmanned Vessels In Its Ambitious 355 Ship Fleet Plan,” “White House Asks Navy T o Include New Unmanned Vessels In Its Ambitious 355 Ship Fleet Plan,” The Drive, ,
December 20, 2019; Paul McCleary, “December 20, 2019; Paul McCleary, “ Navy T o Slash 24 Ships in 2021 Plan, Bolster Unmanned Effort,” Navy T o Slash 24 Ships in 2021 Plan, Bolster Unmanned Effort,” Breaking
Defense, December 20, 2019, David B. Larter, “ Pentagon Proposes Big Cuts to US Navy Destroyer Construction, , December 20, 2019, David B. Larter, “ Pentagon Proposes Big Cuts to US Navy Destroyer Construction,
Retiring 13 Cruisers,” Retiring 13 Cruisers,” Defense News, December 24, 2019.) , December 24, 2019.)
In January 2020, Admiral Michael Gilday, the Chief of Naval Operations, stated that the top-level expression of the In January 2020, Admiral Michael Gilday, the Chief of Naval Operations, stated that the top-level expression of the
ship force-level goal resulting from the Navy’s next FSA would not include UVs. (See, for example, Sam LaGrone, ship force-level goal resulting from the Navy’s next FSA would not include UVs. (See, for example, Sam LaGrone,
“CNO Gilday Calls for Budget Increase “CNO Gilday Calls for Budget Increase tot o Reach 355 Ship Fleet; New Battle Force Count Won’t Include Unmanned Reach 355 Ship Fleet; New Battle Force Count Won’t Include Unmanned
Ships,” Ships,” USNI News, January 14, 2020; Rich Abott, “CNO: Ship Count Will Not Include Unmanned; Bigger T opline , January 14, 2020; Rich Abott, “CNO: Ship Count Will Not Include Unmanned; Bigger T opline
Needed For Fleet Goal,” Needed For Fleet Goal,” Defense Daily, January 15, 2020; John M. Doyle, “CNO , January 15, 2020; John M. Doyle, “CNO ~~Wants~~W ants Larger Slice of Defense Larger Slice of Defense
Budget to Modernize, Meet China T hreat,” Budget to Modernize, Meet China T hreat,” Seapower, January 15, 2020; Rich Abott, “CNO: Ship Count Will Not , January 15, 2020; Rich Abott, “CNO: Ship Count Will Not
Include Unmanned; Bigger T opline Needed For Fleet Goal,” Include Unmanned; Bigger T opline Needed For Fleet Goal,” Defense Daily, January 15, 2020.) , January 15, 2020.)
In September 2020, Secretary of Defense Mark Esper signaled that the stated ship-force level goal will include large In September 2020, Secretary of Defense Mark Esper signaled that the stated ship-force level goal will include large
UVs. (See, for example, Megan Eckstein, “ Esper: Unmanned Vessels Will Allow the Navy to Reach 355 -Ship Fleet ,” UVs. (See, for example, Megan Eckstein, “ Esper: Unmanned Vessels Will Allow the Navy to Reach 355 -Ship Fleet ,”
USNI News, September 18, 2020.) , September 18, 2020.)
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  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;8 access/area-denial (A2/AD) capabilities of other countries, particularly China;8
  technically feasible as a result of advances in technologies for UVs and for as a result of advances in technologies for UVs and for
networking widely distributed maritime forces that include significant numbers networking widely distributed maritime forces that include significant numbers
of UVs; and of UVs; and
  affordable—no more expensive, and possibly less expensive, than the current —no more expensive, and possibly less expensive, than the current
fleet architecture, so as to fit within expected future Navy budgets. fleet architecture, so as to fit within expected future Navy budgets.
Shifting to a more distributed force architecture, Navy and Marine Corps officials have Shifting to a more distributed force architecture, Navy and Marine Corps officials have
suggested, wil support the implementation of the Navy and Marine Corps’ new overarching suggested, wil support the implementation of the Navy and Marine Corps’ new overarching
operational concept, cal ed Distributed Maritime Operations (DMO), and a supporting Marine operational concept, cal ed Distributed Maritime Operations (DMO), and a supporting Marine
Corps operational concept cal ed Expeditionary Advanced Base Operations (EABO). While Navy Corps operational concept cal ed Expeditionary Advanced Base Operations (EABO). While Navy
officials have provided few details in public about DMO,9 the Navy does state in its FY2021 officials have provided few details in public about DMO,9 the Navy does state in its FY2021
budget submission that budget submission that
MUSV and LUSV are key enablers of the Navy’s Distributed Maritime Operations (DMO) MUSV and LUSV are key enablers of the Navy’s Distributed Maritime Operations (DMO)
concept, which includes being able to forward deploy and team with individual manned concept, which includes being able to forward deploy and team with individual manned
combatants or augment battle groups. Fielding of MUSV and LUSV will provide the Navy combatants or augment battle groups. Fielding of MUSV and LUSV will provide the Navy
increased capability and necessary capacity at lower procurement and sustainment costs, increased capability and necessary capacity at lower procurement and sustainment costs,
reduced risk to sailors and increased readiness by offloading missions from manned reduced risk to sailors and increased readiness by offloading missions from manned
combatants.10 combatants.10

8 See, for example, David B. Larter, “With China Gunning for Aircraft Carriers, US Navy Says It Must 8 See, for example, David B. Larter, “With China Gunning for Aircraft Carriers, US Navy Says It Must ~~Ch ange~~Change How It How It
Fights,” Fights,” Defense News, December 6, 2019; Arthur H. Barber, “Redesign the Fleet,” , December 6, 2019; Arthur H. Barber, “Redesign the Fleet,” U.S. Naval Institute Proceedings, ,
January 2019. Some observers have long urged the Navy to shift to a more distributed fleet architecture, on the grounds January 2019. Some observers have long urged the Navy to shift to a more distributed fleet architecture, on the grounds
that the Navy’s current architecture—which concentrates much of the fleet’s capability into a relatively limited number that the Navy’s current architecture—which concentrates much of the fleet’s capability into a relatively limited number
of individually larger and more expensive surface ships—is increasingly vulnerable to attack by the improving A2/AD of individually larger and more expensive surface ships—is increasingly vulnerable to attack by the improving A2/AD
capabilities (particularly anti-ship missiles and their supporting detection and targeting systems) of potential capabilities (particularly anti-ship missiles and their supporting detection and targeting systems) of potential
adversaries, particularly China. Shifting to a more distributed architecture, these observers have argued, would adversaries, particularly China. Shifting to a more distributed architecture, these observers have argued, would
• •
complicate an adversary’s targeting challenge by presenting the adversary with a larger number of Navy units complicate an adversary’s targeting challenge by presenting the adversary with a larger number of Navy units
to detect, identify, and track; to detect, identify, and track;
• •
reduce the loss in aggregate Navy capability that would result from the destruction of an individual Navy reduce the loss in aggregate Navy capability that would result from the destruction of an individual Navy
platform; platform;
• •
give U.S. leaders the option of deploying USVs and UUVs in wartime to sea locations that would be give U.S. leaders the option of deploying USVs and UUVs in wartime to sea locations that would be
tactically advantageous but too risky for manned ships; and tactically advantageous but too risky for manned ships; and
• •
increase the modularity and reconfigurability of the fleet for increase the modularity and reconfigurability of the fleet for ~~adapting~~adapt ing to changing mission needs. to changing mission needs.
For more on China’s maritime A2/AD capabilities, see CRS Report RL33153, For more on China’s maritime A2/AD capabilities, see CRS Report RL33153, China Naval Modernization:
Im plications for U.S. Navy Capabilities—Background and Issues for Congress, by Ronald O'Rourke. , by Ronald O'Rourke.
9 T hen-Chief of Naval Operations Admiral John Richardson, in explaining DMO, stated in December 2018 that “Our 9 T hen-Chief of Naval Operations Admiral John Richardson, in explaining DMO, stated in December 2018 that “Our
fundamental force element right now in many instances is the [individual] carrier strike group. We’re going to scale up fundamental force element right now in many instances is the [individual] carrier strike group. We’re going to scale up
so our fundamental force element for fighting is at the fleet[ -wide] level, and the [individual] strike groups plug into so our fundamental force element for fighting is at the fleet[ -wide] level, and the [individual] strike groups plug into
those [larger] numbered fleets. And they will be, the strike groups and the fleet together, will be operating in a those [larger] numbered fleets. And they will be, the strike groups and the fleet together, will be operating in a
distributed maritime operations way.” (Chief of Naval Operations Admiral John Richardson, as quoted in Megan distributed maritime operations way.” (Chief of Naval Operations Admiral John Richardson, as quoted in Megan
Eckstein, “ Navy Planning for Gray-Zone Conflict; Finalizing Distributed Maritime Operations for High-End Fight,” Eckstein, “ Navy Planning for Gray-Zone Conflict; Finalizing Distributed Maritime Operations for High-End Fight,”
USNI News, December 19, 2018.) , December 19, 2018.)
10 Department of Defense Fiscal Year (FY) 2021 Budget Estimates, Navy Justification Book Volume 2 of 5, Research, 10 Department of Defense Fiscal Year (FY) 2021 Budget Estimates, Navy Justification Book Volume 2 of 5, Research,
Development, T est & Evaluation, February 2020, PDF page 90 of 1,538. T he statement also appears on PDF page 324 Development, T est & Evaluation, February 2020, PDF page 90 of 1,538. T he statement also appears on PDF page 324
of 1,538. For more on the more distributed force architecture, DMO, and EABO, seeof 1,538. For more on the more distributed force architecture, DMO, and EABO, see CRS Report RL32665, CRS Report RL32665, Navy
Force Structure and Shipbuilding Plans: Background and Issues for Congress, by Ronald O'Rourke. See also Kevin , by Ronald O'Rourke. See also Kevin
Eyer and Steve McJessy, “ Operationalizing Distributed Maritime Operations,” Center for International Maritime Eyer and Steve McJessy, “ Operationalizing Distributed Maritime Operations,” Center for International Maritime
Security (CIMSEC), March 5, 2019; Christopher H. Popa et al., Security (CIMSEC), March 5, 2019; Christopher H. Popa et al., Distributed Maritim e Operations and Unm anned
System s Tactical Em ploym ent, Naval Postgraduate School, June 2018, 171 pp. (, Naval Postgraduate School, June 2018, 171 pp. (~~Systems~~Sy stems Engineering Capstone Report); Engineering Capstone Report);
Lyla Englehorn, Lyla Englehorn, Distributed Maritim e Operations (DMO) Warfare Innovation Continuum (WIC) Workshop Septem ber
Congressional Research Service Congressional Research Service
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link to page 11 link to page 11 link to page 11 link to page 11 link to page 11 link to page 11 Navy Large Unmanned Surface and Undersea Vehicles

On December 9, 2020, the outgoing Trump Administration released a document that can be 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 shipbuilding plan. The document presents an envisioned Navy force-level goal for year Navy shipbuilding plan. The document presents an envisioned Navy force-level goal for
achieving by 2045 a Navy with a more distributed fleet architecture, including 382 to 446 manned achieving by 2045 a Navy with a more distributed fleet architecture, including 382 to 446 manned
ships, 119 to 166 LUSVs and MUSVs, and 24 to 76 XLUUVs. In establishing its force-level ships, 119 to 166 LUSVs and MUSVs, and 24 to 76 XLUUVs. In establishing its force-level
goals and shipbuilding plans for the Navy, the Biden Administration can choose to adopt, revise, goals and shipbuilding plans for the Navy, the Biden Administration can choose to adopt, revise,
or set aside this document.11 or set aside this document.11
Accelerated Acquisition Strategies and Enabling Technologies
The Navy wants to employ accelerated acquisition strategies for procuring large UVs, so as to get The Navy wants to employ accelerated acquisition strategies for procuring large UVs, so as to get
them into service more quickly. The Navy’s desire to employ these accelerated acquisition them into service more quickly. The Navy’s desire to employ these accelerated acquisition
strategies can be viewed as an expression of the urgency that the Navy attaches to fielding large strategies can be viewed as an expression of the urgency that the Navy attaches to fielding large
UVs for meeting future military chal enges from countries such as China.12 UVs for meeting future military chal enges from countries such as China.12
The LUSV and MUSV The LUSV and MUSV programs are building on USV development work done by the Strategic programs are building on USV development work done by the Strategic
Capabilities Office (SCO) within the Office of the Secretary of Defense (OSD). SCO’s effort to Capabilities Office (SCO) within the Office of the Secretary of Defense (OSD). SCO’s effort to
develop USVs is cal ed Ghost Fleet, and its LUSV development effort within Ghost Fleet is develop USVs is cal ed Ghost Fleet, and its LUSV development effort within Ghost Fleet is
cal ed Overlord. cal ed Overlord.
As shown i As shown in Figure 3, the Navy has identified five key enabling groups of technologies for its the Navy has identified five key enabling groups of technologies for its
USV and UUV programs.13 Given limitations on underwater communications (most radio-USV and UUV programs.13 Given limitations on underwater communications (most radio-
frequency electromagnetic waves do not travel far underwater), technologies for autonomous frequency electromagnetic waves do not travel far underwater), technologies for autonomous
operations (such as artificial intel igence) wil be particularly important for the XLUUV program operations (such as artificial intel igence) wil be particularly important for the XLUUV program
(and other UUV programs).14 (and other UUV programs).14
In May 2019, the Navy established a surface development squadron to help develop operational In May 2019, the Navy established a surface development squadron to help develop operational
concepts for LUSVs and MUSVs. The squadron wil initial y consist of a Zumwalt (DDG-1000) concepts for LUSVs and MUSVs. The squadron wil initial y consist of a Zumwalt (DDG-1000)
class destroyer and one Sea Hunter prototype medium displacement USV class destroyer and one Sea Hunter prototype medium displacement USV (Figure 4). A second ). A second
Sea Hunter prototype wil reportedly be added around the end of FY2020, and LUSVs and Sea Hunter prototype wil reportedly be added around the end of FY2020, and LUSVs and
MUSVs wil then be added as they become available.15 MUSVs wil then be added as they become available.15

2017 After Action Report, Naval Postgraduate School, December 2017, 99 pp. , Naval Postgraduate School, December 2017, 99 pp.
11 For more on the December 9, 2020, document, see CRS Report RL32665, 11 For more on the December 9, 2020, document, see CRS Report RL32665, Navy Force Structure and Shipbuilding
Plans: Background and Issues for Congress, by Ronald O'Rourke. , by Ronald O'Rourke.
12 A number of other DOD acquisition programs are also employing rapid or accelerated acquisition strategies of one 12 A number of other DOD acquisition programs are also employing rapid or accelerated acquisition strategies of one
kind or another, in some cases using special acquisition authorities that Congress has granted to DOD. For additional kind or another, in some cases using special acquisition authorities that Congress has granted to DOD. For additional
discussion, see CRS Report R45068, discussion, see CRS Report R45068, Acquisition Reform in the FY2016-FY2018 National Defense Authorization Acts
(NDAAs), by Moshe Schwartz and Heidi M. Peters. , by Moshe Schwartz and Heidi M. Peters.
13 For additional discussion of some of the enabling technologies shown i13 For additional discussion of some of the enabling technologies shown in Figure 3, see Pete Small, “Empowering the , see Pete Small, “Empowering the
Unmanned Maritime Revolution,” Undersea Warfare, Spring 2019: 12 -13. Unmanned Maritime Revolution,” Undersea Warfare, Spring 2019: 12 -13.
14 For more on the use of artificial intelligence in defense programs, see CRS Report R45178, 14 For more on the use of artificial intelligence in defense programs, see CRS Report R45178, Artificial Intelligence
and National Security, by Kelley M. Sayler. , by Kelley M. Sayler.
15 See, for example, Megan Eckstein, “Navy Stands Up Surface Development Squadron for DDG-1000, Unmanned 15 See, for example, Megan Eckstein, “Navy Stands Up Surface Development Squadron for DDG-1000, Unmanned
Experimentation,” Experimentation,” USNI News, May 22, 2019; David B. Larter, “With Billions Planned in Funding, the US Navy , May 22, 2019; David B. Larter, “With Billions Planned in Funding, the US Navy
Charts Its Unmanned Future,” Charts Its Unmanned Future,” Defense News, May 6, 2019. See also Michael Fabey, “USN Seeks Path for Unmanned , May 6, 2019. See also Michael Fabey, “USN Seeks Path for Unmanned
Systems Operational Concepts,” Systems Operational Concepts,” Jane’s Navy International, May 16, 2019. , May 16, 2019.
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Figure 3. Enabling Technologies for USVs and UUVs

Source: Slide 4 of briefing by Captain Pete Smal , Program Manager, Unmanned Maritime Systems (PMS 406), Slide 4 of briefing by Captain Pete Smal , Program Manager, Unmanned Maritime Systems (PMS 406),
entitled “Unmanned Maritime Systems Update,” January 15, 2019, accessedentitled “Unmanned Maritime Systems Update,” January 15, 2019, accessed May 22, 2019, at May 22, 2019, at
https://www.navsea.navy.mil/Portals/103/Documents/Exhibits/SNA2019/UnmannedMaritimeSys-Smal .pdf?ver=https://www.navsea.navy.mil/Portals/103/Documents/Exhibits/SNA2019/UnmannedMaritimeSys-Smal .pdf?ver=
2019-01-15-165105-297. 2019-01-15-165105-297.
Figure 4. Sea Hunter Prototype Medium Displacement USV

Source: Photograph credited to U.S. Navy accompanying John Grady, “Panel: Unmanned Surface Vessels Wil be Photograph credited to U.S. Navy accompanying John Grady, “Panel: Unmanned Surface Vessels Wil be
Significant Part of Future U.S. Fleet,” Significant Part of Future U.S. Fleet,” USNI News, April 15, 2019. , April 15, 2019.
Congressional Research Service Congressional Research Service
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link to page 12 link to page link to page 12 link to page ~~12 link to page 13 link to page 13~~

~~Navy Large Unmanned Surface and Undersea Vehicles~~

~~LUSV, MUSV, and LXUUV Programs in Brief~~
~~LUSV Program~~
~~Overview~~
13 link to page 12 Navy Large Unmanned Surface and Undersea Vehicles LUSV, MUSV, and LXUUV Programs in Brief Navy Vision and Schedule for USVs and UUVs Figure 5 and Figure 6 show the Navy’s vision and schedule for building, testing, and conducting fleet experiments with USVs and UUVs, including the LUSV, the MUSV, and the XLUUV, along with supporting efforts such as the Overlord and Sea Hunter prototype USVs, as wel as smal er USVs and UUVs that are not covered in this report. In the two figures, the numbers inside the smal green triangles represent quantities of the systems in question, a downward-pointing green triangle indicates the start of construction, and an upward-pointing triangle indicates the completion of construction. For example, Figure 5 shows that under the Navy’s USV vision, a single MUSV would start construction in 2020 and complete construction near the end of 2022, and that the next MUSV would start construction in 2023 and complete construction in 2025. Figure 5. Navy USV Systems Vision Source: Captain Pete Smal , “PMS 406 Unmanned Maritime Systems,” briefing at NDIA Undersea Warfare Conference, March 24, 2021, slide 3. Notes: GFE means government-furnished equipment, meaning equipment that the government wil provide to the firm that is building the USV, for incorporation into the USV. Congressional Research Service 8 link to page 14 link to page 14 link to page 14 link to page 15 Navy Large Unmanned Surface and Undersea Vehicles Figure 6. Navy UUV Systems Vision Source: Captain Pete Smal , “PMS 406 Unmanned Maritime Systems,” briefing at NDIA Undersea Warfare Conference, March 24, 2021, slide 4. Notes: DDS is dry deck shelter, which is a module that can be attached to the top surface of a submarine for the purpose of carrying a special payload. PHS is payload handling system. IPOE is intel igence preparation of the operational environment. MCM is mine countermeasures. TTL&R is torpedo tube launch and recovery. INC is increment (i.e., version). DIU is Defense Innovation Unit, which is a DOD organization. NSW is naval special warfare. LUSV Program Overview The Navy envisions LUSVs as being 200 feet to 300 feet in length and having full load The Navy envisions LUSVs as being 200 feet to 300 feet in length and having full load
displacements of 1,000 tons to 2,000 tons, which would make them the size of a corvettedisplacements of 1,000 tons to 2,000 tons, which would make them the size of a corvette. Figure
57 shows a detail from a Navy briefing slide showing images of prototype LUSVs and silhouettes shows a detail from a Navy briefing slide showing images of prototype LUSVs and silhouettes
of a notional LUSV and a notional MUSV.of a notional LUSV and a notional MUSV. Figure 68 aand Figure 79 show ships that have been used show ships that have been used
as LUSV prototypes. In unclassified presentations on the program, the Navy has used images of as LUSV prototypes. In unclassified presentations on the program, the Navy has used images of
offshore support ships used by the oil and gas industry to il ustrate the kinds of ships that might offshore support ships used by the oil and gas industry to il ustrate the kinds of ships that might
be used as the basis for LUSVs.16 be used as the basis for LUSVs.16
16 Sam LaGrone, “Navy Wants 10-Ship Unmanned ‘Ghost Fleet’ to Supplement Manned Force,” USNI News, March 13, 2019. Congressional Research Service 9 Navy Large Unmanned Surface and Undersea Vehicles Figure 7 ~~Figure 5~~. Prototype and Notional LUSVs and MUSVs

Source: Detail from Navy briefing slide entitled Unmanned Maritime Systems, slide 5 in a Navy briefing entitled Detail from Navy briefing slide entitled Unmanned Maritime Systems, slide 5 in a Navy briefing entitled
“Designing & Building the Surface Fleet: Unmanned and Smal Combatants,” by Rear Admiral Casey Moton at a “Designing & Building the Surface Fleet: Unmanned and Smal Combatants,” by Rear Admiral Casey Moton at a
June 20, 2019, conference of the American Society of Naval Engineers (ASNE). June 20, 2019, conference of the American Society of Naval Engineers (ASNE).
~~The Navy wants LUSVs to be low-cost, high-endurance, reconfigurable ships based on~~
~~commercial ship designs, with ample capacity for carrying various modular payloads—~~

~~16 Sam LaGrone, “Navy Wants 10-Ship Unmanned ‘Ghost Fleet’ to Supplement Manned Force,” USNI News, March~~
~~13, 2019.~~
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~~particularly anti-surface warfare (ASuW) and strike payloads, meaning principal y anti-ship and~~
~~land-attack missiles.17~~
~~Figure 6. LUSV Prototype~~Figure 8. LUSV Prototype Source: Cropped version of photograph accompanying Mal ory Shelbourne, “6 Companies Awarded Contracts to Start Work on Large Unmanned Surface Vehicle,” USNI News, September 4, 2020. The caption to the photograph states in part: “A Ghost Fleet Overlord test vessel takes part in a capstone demonstration during the conclusion of Phase I of the program in September.” The photo is credited to the U.S. Navy. Congressional Research Service 10 Navy Large Unmanned Surface and Undersea Vehicles Figure 9. LUSV prototype

Source: Cropped version of photograph accompanying Mal ory Shelbourne, “6 Companies Awarded Contracts Cropped version of photograph accompanying Mal ory Shelbourne, “6 Companies Awarded Contracts
to Start Work on Large Unmanned Surface Vehicle,” to Start Work on Large Unmanned Surface Vehicle,” USNI News, September 4, 2020. The caption to the , September 4, 2020. The caption to the
photograph states in part: “A Ghost Fleet Overlord test vessel takes part in a capstone demonstration during the photograph states in part: “A Ghost Fleet Overlord test vessel takes part in a capstone demonstration during the
conclusion of Phase I of the program in September.” The photo is credited to the U.S. Navy. conclusion of Phase I of the program in September.” The photo is credited to the U.S. Navy.
~~Figure 7. LUSV prototype~~

Source: Cropped version of photograph accompanying Mal ory Shelbourne, “6 Companies Awarded Contracts
~~to Start Work on Large Unmanned Surface Vehicle,” USNI News, September 4, 2020. The caption to the~~
~~photograph states in part: “A Ghost Fleet Overlord test vessel takes part in a capstone demonstration during the~~
~~conclusion of Phase I of the program in September.” The photo is credited to the U.S. Navy.~~The Navy wants LUSVs to be low-cost, high-endurance, reconfigurable ships based on commercial ship designs, with ample capacity for carrying various modular payloads—particularly anti-surface warfare (ASuW) and strike payloads, meaning principal y anti-ship and land-attack missiles.17 The Navy wants LUSVs to be capable of operating with human operators in the loop,18 or semi-autonomously (with human operators on the loop),19 or fully autonomously, and to be capable of operating either independently or in conjunction with manned surface combatants. Although referred to as UVs, LUSVs might be more accurately described as optional y or lightly manned ships, because they might sometimes have a few onboard crew members, particularly in the nearer term as the Navy works out LUSV enabling technologies and operational concepts.20 LUSVs are to feature both built-in capabilities and an ability to accept modular payloads, and are to use existing Navy sensors and weapon launchers. The Navy states: Building upon the Department of Defense’s Strategic Capabilities Office (SCO) funded and Navy executed experimentation with USVs in Project Overlord, the Navy’s LUSV will be a high-endurance vessel based on commercial specifications, capable of weeks -long deployments and trans-oceanic transits. With a large payload capacity, the LUSV will be designed to conduct a variety of warfare operations initially in conjunction with manned

17 T he Navy states that the LUSV “provides distributed fires” and will include an “offensive missile capability.” See 17 T he Navy states that the LUSV “provides distributed fires” and will include an “offensive missile capability.” See
~~Slide~~slide 5 of briefing by Captain Pete Small, Program Manager, Unmanned Maritime Systems 5 of briefing by Captain Pete Small, Program Manager, Unmanned Maritime Systems (PMS 406), entitled (PMS 406), entitled
“Unmanned Maritime Systems Update,” January 15, 2019, accessed May 22, 2019, at https://www.navsea.navy.mil/“Unmanned Maritime Systems Update,” January 15, 2019, accessed May 22, 2019, at https://www.navsea.navy.mil/
Portals/103/Documents/Exhibits/SNA2019/UnmannedMaritimeSys-Small.pdf?ver=2019-01-15-165105-297. Portals/103/Documents/Exhibits/SNA2019/UnmannedMaritimeSys-Small.pdf?ver=2019-01-15-165105-297.
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~~The Navy wants LUSVs to be capable of operating with human operators in the loop,18 or semi-~~
~~autonomously (with human operators on the loop),19 or fully autonomously, and to be capable of~~
~~operating either independently or in conjunction with manned surface combatants. Although~~
~~referred to as UVs, LUSVs might be more accurately described as optional y or lightly manned~~
~~ships, because they might sometimes have a few onboard crew members, particularly in the~~
~~nearer term as the Navy works out LUSV enabling technologies and operational concepts.20~~
~~LUSVs are to feature both built-in capabilities and an ability to accept modular payloads, and are~~
~~to use existing Navy sensors and weapon launchers.~~18 T he Navy states that having the operator in the loop can be understood as referring to continuous or near-continuous observation and/or control of the UV by the operator. (Source: Navy email to CRS dated June 4, 2019.) 19 T he Navy states that having the operator on the loop can be understood as referring to a UV that is operating semi -autonomously, with the UV controlling its own actions much of the time, but with a human operator potentially intervening from time to time in response to either a prompt from the UV or data sent from the UV or other sources. (Source: Navy email to CRS dated June 4, 2019.) 20 See, for example, David B. Larter, “US Navy Looks to Ease into Using Unmanned Robot Ships with a Manned Crew,” Defense News, January 29, 2019. Congressional Research Service 11 Navy Large Unmanned Surface and Undersea Vehicles surface combatants while under the positive control of a man-in-the-loop for employment of weapons systems. The Navy is taking an iterative, systems engineering approach to obtaining this technology and has designed an integration and experimentation plan that will validate high reliability mechanical and electrical systems, autonomous navigation and maneuvering, integration of combat system, and platform command and control capabilities prior to employment opportunities. LUSV Design Studies contracts were awarded in September 2020 to six Industry teams to provide robust collaboration with government and industry to assist in maturation of platform specifications, and ensure achievable technical requirements are in place for a follow on development contract. Both Industry and the Navy are using these collaborative interactions to significantly advance the knowledge base that will feed into the LUSV program.21
FY2020 Legislative Activity
In marking up the Navy’s proposed FY2020 budget, some of the congressional defense In marking up the Navy’s proposed FY2020 budget, some of the congressional defense
committees expressed concerns over whether the Navy’s accelerated acquisition strategies committees expressed concerns over whether the Navy’s accelerated acquisition strategies
provided enough time to adequately develop concepts of operations and key technologies for provided enough time to adequately develop concepts of operations and key technologies for
large UVs, particularly the LUSV. In its report (S.Rept. 116-48 of June 11, 2019) on the FY2020 large UVs, particularly the LUSV. In its report (S.Rept. 116-48 of June 11, 2019) on the FY2020
National Defense Authorization Act (S. 1790), the Senate Armed Services Committee stated National Defense Authorization Act (S. 1790), the Senate Armed Services Committee stated
The committee is concerned that the budget request’s concurrent approach to LUSV The committee is concerned that the budget request’s concurrent approach to LUSV
design, technology development, and integration as well as a limited design, technology development, and integration as well as a limited ~~understanding~~understandin g of the of the
LUSV concept of employment, requirements, and reliability for envisioned missions pose LUSV concept of employment, requirements, and reliability for envisioned missions pose
excessive acquisition risk for additional LUSV procurement in fiscal year 2020. The excessive acquisition risk for additional LUSV procurement in fiscal year 2020. The
committee is also concerned by the unclear policy implications of LUSVs, including ill-committee is also concerned by the unclear policy implications of LUSVs, including ill-
defined international unmanned surface vessel standards and the legal status of armed or defined international unmanned surface vessel standards and the legal status of armed or
potentially armed LUSVs. potentially armed LUSVs.
Additionally, the committee notes that the Navy’s “Report to Congress on the Annual Additionally, the committee notes that the Navy’s “Report to Congress on the Annual
Long-Range Plan for Construction of Naval Vessels for Fiscal Year 2020” acknowledges Long-Range Plan for Construction of Naval Vessels for Fiscal Year 2020” acknowledges
similar issues: “Unmanned and optionally-manned systems are not accounted for in the similar issues: “Unmanned and optionally-manned systems are not accounted for in the
overall battle force[.] ... The physical challenges of extended operations at sea across the overall battle force[.] ... The physical challenges of extended operations at sea across the
spectrum of competition and conflict, the concepts of operations for these platforms, and spectrum of competition and conflict, the concepts of operations for these platforms, and
the policy challenges associated with employing deadly force from autonomous vehicles the policy challenges associated with employing deadly force from autonomous vehicles
must be well understood prior to replacing accountable battle force ships.” must be well understood prior to replacing accountable battle force ships.”
The committee believes that further procurement of LUSVs should occur only after the The committee believes that further procurement of LUSVs should occur only after the
lessons learned from the current SCO initiative have been incorporated into the next lessons learned from the current SCO initiative have been incorporated into the next
solicitation to enable incremental risk reduction. solicitation to enable incremental risk reduction.
In addition, the committee believes that the LUSV program, which appears likely In addition, the committee believes that the LUSV program, which appears likely to exceed to exceed
the Major Defense Acquisition Program cost threshold, would benefit from a more rigorous the Major Defense Acquisition Program cost threshold, would benefit from a more rigorous
requirements definition process, analysis of alternatives, and deliberate acquisition requirements definition process, analysis of alternatives, and deliberate acquisition
strategy.strategy.2122 S.Rept. 116-48 also stated 21 Statement of Fredrick J. Stefany, Acting Assistant Secretary of the Navy for Research, Develop ment and Acquisition (ASN [RD&A]) and Vice Admiral James W. Kilby, Deputy Chief of Naval Operations for Warfare Systems and Lieutenant General Eric M. Smith, Deputy Commandant Combat Development and Integration & Commanding General, Marine Corps Combat Development Command, before the House Armed Services Committee Subcommittee on Seapower and Projection Forces, on Department of the Navy Unm anned Systems, March 18, 2021, p. 14. 22 S.Rept. 116-48, p. 80. Congressional Research Service 12
~~S.Rept. 116-48 also stated~~

~~18 T he Navy states that having the operator in the loop can be understood as referring to continuous or near -continuous~~
~~observation and/or control of the UV by the operator. (Source: Navy email to CRS dated June 4, 2019.)~~
~~19 T he Navy states that having the operator on the loop can be understood as referring to a UV that is operating semi -~~
~~autonomously, with the UV controlling its own actions much of the time, but with a human operator potentially~~
~~intervening from time to time in response to either a prompt from the UV or data sent from the UV or other sources.~~
~~(Source: Navy email to CRS dated June 4, 2019.)~~
~~20 See, for example, David B. Larter, “US Navy Looks to Ease into Using Unmanned Robot Ships with a Manned~~
~~Crew,” Defense News, January 29, 2019.~~
~~21 S.Rept. 116-48, p. 80.~~
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While recognizing the need for prototypes to reduce acquisition risk, the committee is While recognizing the need for prototypes to reduce acquisition risk, the committee is
concerned that the acquisition strategies for the Large USV,concerned that the acquisition strategies for the Large USV, Medium USV, Orca UUV, Medium USV, Orca UUV,
and Snakehead UUV could lead to procurement of an excessive number of systems before and Snakehead UUV could lead to procurement of an excessive number of systems before
the Navy is able to determine if the USVs and UUVs meet operational needs. the Navy is able to determine if the USVs and UUVs meet operational needs.
Therefore, the committee directs the Secretary of the Navy to submit a Therefore, the committee directs the Secretary of the Navy to submit a ~~report~~rep ort to the to the
congressional defense committees, not later than November 1, 2019, that provides congressional defense committees, not later than November 1, 2019, that provides
acquisition roadmaps for the Large USV, Medium USV, Orca UUV, and Snakehead acquisition roadmaps for the Large USV, Medium USV, Orca UUV, and Snakehead
UUV.UUV.2223
In its report (S.Rept. 116-103 of September 12, 2019) on the FY2020 DOD Appropriations Act In its report (S.Rept. 116-103 of September 12, 2019) on the FY2020 DOD Appropriations Act
(S. 2474), the Senate Appropriations Committee stated that (S. 2474), the Senate Appropriations Committee stated that
the Committee is concerned that for several unmanned programs the Navy is pursuing the Committee is concerned that for several unmanned programs the Navy is pursuing
acquisition strategies that would limit future competitive opportunities by awarding acquisition strategies that would limit future competitive opportunities by awarding
system-level prototypes early in the acquisition process and failing to articulate capability, system-level prototypes early in the acquisition process and failing to articulate capability,
requirements or technology roadmaps to encourage industrial innovation. The Assistant requirements or technology roadmaps to encourage industrial innovation. The Assistant
Secretary of the Navy (Research, Development and Acquisition) is directed to submit to Secretary of the Navy (Research, Development and Acquisition) is directed to submit to
the congressional defense committees with the fiscal year 2021 President’s budget request the congressional defense committees with the fiscal year 2021 President’s budget request
such acquisition roadmaps for each unmanned acquisition program that include no less such acquisition roadmaps for each unmanned acquisition program that include no less
than mission requirements, program requirements for each increment, key technologies, than mission requirements, program requirements for each increment, key technologies,
acquisition strategies, test strategies, sub-system and system-level prototyping plans, and acquisition strategies, test strategies, sub-system and system-level prototyping plans, and
cost estimates.cost estimates.2324
S.Rept. 116-103 also stated S.Rept. 116-103 also stated
The Committee fully supports additional investments in unmanned and autonomous The Committee fully supports additional investments in unmanned and autonomous
technologies, systems and sub-systems, including surface and sub-surface vessels. technologies, systems and sub-systems, including surface and sub-surface vessels.
However, the Committee is concerned with the proposed acquisition and funding strategies However, the Committee is concerned with the proposed acquisition and funding strategies
for the MUSV and LUSV in this budget request, to include the Future Years Defense for the MUSV and LUSV in this budget request, to include the Future Years Defense
Program. Therefore, the Committee recommends several Program. Therefore, the Committee recommends several ~~adjustments~~adjustme nts, as detailed , as detailed
elsewhere in this report, and directs the Assistant Secretary of the Navy (Research, elsewhere in this report, and directs the Assistant Secretary of the Navy (Research,
Development and Acquisition) to review the acquisition strategies for these programs to Development and Acquisition) to review the acquisition strategies for these programs to
address congressional concerns, as appropriately balanced with warfighter needs. (Page address congressional concerns, as appropriately balanced with warfighter needs. (Page
194)194)2425

2223 S.Rept. 116-48, p. 106. T he report stated further on pages 106-107 that S.Rept. 116-48, p. 106. T he report stated further on pages 106-107 that
Each roadmap shall: (1) Identify the applicable requirements document (e.g., T op Level Each roadmap shall: (1) Identify the applicable requirements document (e.g., T op Level
Requirements); (2) Describe the threshold and objective values for each characteristic, key Requirements); (2) Describe the threshold and objective values for each characteristic, key
performance parameter (KPP), or other measure in the applicable requirements document; (3) performance parameter (KPP), or other measure in the applicable requirements document; (3)
Identify increments of vessels in each program; (4) For each such increment, identify specific Identify increments of vessels in each program; (4) For each such increment, identify specific
entrance and exit criteria that build toward the specified requirements (e.g., characteristic, KPP,entrance and exit criteria that build toward the specified requirements (e.g., characteristic, KPP, or or
other measure), including demonstrated hardware and software functionality; (5) Identify the other measure), including demonstrated hardware and software functionality; (5) Identify the
quantity of vessels needed in each increment to perform the required testing or meet quantity of vessels needed in each increment to perform the required testing or meet ~~operation al~~operational
needs; (6) Describe the concept of operations for each increment; (7) Identify the key pieces of needs; (6) Describe the concept of operations for each increment; (7) Identify the key pieces of
hardware and software needed for each increment, including communications security material, hardware and software needed for each increment, including communications security material,
off-board line-of-sight and satellite communications, and off-board line-of-sight and satellite communications, and ~~milit ary~~military datalinks; (8) Describe the extent datalinks; (8) Describe the extent
to which each increment of vessels will be equipped with weapons, enumerate such weapons, and to which each increment of vessels will be equipped with weapons, enumerate such weapons, and
describe the associated target detect -to-engage sequence of events for each such weapon; (9) describe the associated target detect -to-engage sequence of events for each such weapon; (9)
Provide the subsystem-level prototyping plan for each increment, including for each such effortProvide the subsystem-level prototyping plan for each increment, including for each such effort the the
planned cost, schedule, and performance; and (10) Provide the acquisition plan for each increment, planned cost, schedule, and performance; and (10) Provide the acquisition plan for each increment,
including the planned cost, schedule, and performance. including the planned cost, schedule, and performance.
2324 S.Rept. 116-103, p. 191. S.Rept. 116-103, p. 191.
2425 S.Rept. 116-103, p. 194. S.Rept. 116-103, p. 194.
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The explanatory statement for the final version of the FY2020 DOD Appropriations Act (Division The explanatory statement for the final version of the FY2020 DOD Appropriations Act (Division
A of H.R. 1158/P.L. 116-93 of December 20, 2020) stated A of H.R. 1158/P.L. 116-93 of December 20, 2020) stated
The Secretary of the Navy is directed to comply with the full funding policy for LUSVs in The Secretary of the Navy is directed to comply with the full funding policy for LUSVs in
future budget submissions. Further, the agreement recommends $50,000,000 for the design future budget submissions. Further, the agreement recommends $50,000,000 for the design
of future LUSVs without a vertical launch system [VLS] capability in fiscal year 2020. of future LUSVs without a vertical launch system [VLS] capability in fiscal year 2020.
Incremental upgrade capability for a vertical launch system may be addressed in future Incremental upgrade capability for a vertical launch system may be addressed in future
fiscal years. It is directed that no funds may be awarded for the conceptual design of future fiscal years. It is directed that no funds may be awarded for the conceptual design of future
LUSVs until the Assistant Secretary of the Navy (Research, Development and Acquisition) LUSVs until the Assistant Secretary of the Navy (Research, Development and Acquisition)
briefs the congressional defense committees on the updated acquisition strategy for briefs the congressional defense committees on the updated acquisition strategy for
unmanned surface vessels.unmanned surface vessels.2526
FY2021 Budget Submission
In response to the markups from the congressional defense committees, the Navy’s FY2021 In response to the markups from the congressional defense committees, the Navy’s FY2021
budget submission proposed modifying the acquisition strategy for the LUSV program so as to budget submission proposed modifying the acquisition strategy for the LUSV program so as to
provide more time for developing operational concepts and key technologies before entering into provide more time for developing operational concepts and key technologies before entering into
serial production of deployable units. Under the Navy’s proposed modified LUSV acquisition serial production of deployable units. Under the Navy’s proposed modified LUSV acquisition
strategy, the Navy proposed using research and development funding to acquire two additional strategy, the Navy proposed using research and development funding to acquire two additional
prototypes in FY2021 and one more additional prototype in FY2022 before shifting in FY2023 to prototypes in FY2021 and one more additional prototype in FY2022 before shifting in FY2023 to
the use of procurement funding for the procurement of deployable LUSVs at annual procurement the use of procurement funding for the procurement of deployable LUSVs at annual procurement
rates in FY2023-FY2025 of 2-2-3. The Navy’s FY2021 budget submission states rates in FY2023-FY2025 of 2-2-3. The Navy’s FY2021 budget submission states
Major changes [in the LUSV program] from [the] FY 2020 President’s Budget request to Major changes [in the LUSV program] from [the] FY 2020 President’s Budget request to
[the] FY 2021 President’s Budget request [include the following]: [the] FY 2021 President’s Budget request [include the following]:
(1) The program will award Conceptual Design (CD) contracts to multiple vendors in (1) The program will award Conceptual Design (CD) contracts to multiple vendors in
FY20. The CD effort will support refinement of a LUSV Performance Specification that FY20. The CD effort will support refinement of a LUSV Performance Specification that
does not include the Vertical Launch System (VLS). The final Performance Specification does not include the Vertical Launch System (VLS). The final Performance Specification
will define a LUSV with reservations in the design to support integration of a variety of will define a LUSV with reservations in the design to support integration of a variety of
capabilities and payloads. This effort, which was originally planned to award in Q2 [the capabilities and payloads. This effort, which was originally planned to award in Q2 [the
second quarter of] FY 2020 will be delayed until early Q4 [the fourth quarter of] FY 2020 second quarter of] FY 2020 will be delayed until early Q4 [the fourth quarter of] FY 2020
in order to support amendment of the CD Request for Proposals (RFP), Performance in order to support amendment of the CD Request for Proposals (RFP), Performance
Specification, and associated artifacts. Specification, and associated artifacts.
(2) The delay in award of the LUSV CD effort will delay follow-on activities (RFP (2) The delay in award of the LUSV CD effort will delay follow-on activities (RFP
[Request for Proposals], [and] source selection) leading up to the award of the LUSV Detail [Request for Proposals], [and] source selection) leading up to the award of the LUSV Detail
Design and Construction (DD&C) contract. DD&C award will be delayed one year, from Design and Construction (DD&C) contract. DD&C award will be delayed one year, from
FY 2021 to FY 2022. The DD&C award will deliver a non-VLS LUSV prototype based FY 2021 to FY 2022. The DD&C award will deliver a non-VLS LUSV prototype based
on the Performance Specification developed during the CD effort. on the Performance Specification developed during the CD effort.
(3) In lieu of the FY 2020 President’s Budget request plan of awarding the LUSV DD&C (3) In lieu of the FY 2020 President’s Budget request plan of awarding the LUSV DD&C
contract in FY21, the Navy is planning to procure up to two additional Overlord prototypes, contract in FY21, the Navy is planning to procure up to two additional Overlord prototypes,
building on the lessons learned through the Ghost Fleet program and advances in C4I and building on the lessons learned through the Ghost Fleet program and advances in C4I and
combat system prototyping efforts. combat system prototyping efforts.
(4) The Navy plans to transition LUSV to a program of record in FY 2023 and align [the (4) The Navy plans to transition LUSV to a program of record in FY 2023 and align [the
program’s] procurement funding to the Shipbuilding and Conversion, Navy (SCN) program’s] procurement funding to the Shipbuilding and Conversion, Navy (SCN)
account.account.2627

2526 Explanatory statement for Division A of H.R. 1158, PDF page 274 of 414. Explanatory statement for Division A of H.R. 1158, PDF page 274 of 414.
2627 See also Justin Katz, “Navy Says It Will Adjust to LUSV Restrictions; New Plan Will Be Part of Next Budget,” See also Justin Katz, “Navy Says It Will Adjust to LUSV Restrictions; New Plan Will Be Part of Next Budget,”
Inside Defense, January 16, 2020; Vivienne Machi, “ FY ’21 Budget Request to Include ‘Adjustment’ to LUSV , January 16, 2020; Vivienne Machi, “ FY ’21 Budget Request to Include ‘Adjustment’ to LUSV
Procurement Schedule, PEO Says,” Procurement Schedule, PEO Says,” Defense Daily, January 16, 2020. , January 16, 2020.
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A January 13, 2020, press report stated that the Navy planned to submit a report on the Navy’s A January 13, 2020, press report stated that the Navy planned to submit a report on the Navy’s
concepts of operations for LUSVs and MUSVs in April 2020. concepts of operations for LUSVs and MUSVs in April 2020.2728
September 4, 2020 Contract Award
On September 4, 2020, DOD announced the following six contract awards for industry studies on On September 4, 2020, DOD announced the following six contract awards for industry studies on
the LUSV: the LUSV:
Huntington Ingalls Inc., Pascagoula, Mississippi (N00024-20-C-6319); Lockheed Martin Huntington Ingalls Inc., Pascagoula, Mississippi (N00024-20-C-6319); Lockheed Martin
Corp., Baltimore, Maryland (N00024-20-C-6320); Bollinger Shipyards Lockport LLC, Corp., Baltimore, Maryland (N00024-20-C-6320); Bollinger Shipyards Lockport LLC,
Lockport, Louisiana (N00024-20-C-6316); Marinette Marine Corp., Marinette, Wisconsin Lockport, Louisiana (N00024-20-C-6316); Marinette Marine Corp., Marinette, Wisconsin
(N00024-20-C-6317); Gibbs & Cox Inc., Arlington, Virginia (N0002420C6318); and (N00024-20-C-6317); Gibbs & Cox Inc., Arlington, Virginia (N0002420C6318); and
Austal USA LLC, Mobile, Alabama (N00024-20-C-6315), are each being awarded a firm-Austal USA LLC, Mobile, Alabama (N00024-20-C-6315), are each being awarded a firm-
fixed price contract for studies of a Large Unmanned Surface Vessel with a combined value fixed price contract for studies of a Large Unmanned Surface Vessel with a combined value
across all awards of $41,985,112. across all awards of $41,985,112.
Each contract includes an option for engineering support, that if exercised, would bring the Each contract includes an option for engineering support, that if exercised, would bring the
cumulative value for all awards to $59,476,146. cumulative value for all awards to $59,476,146.
 
The contract awarded to Huntington Ingal s Inc. is $7,000,000; The contract awarded to Huntington Ingal s Inc. is $7,000,000;
 
the contract awarded to Lockheed Martin Corp. is $6,999,978; the contract awarded to Lockheed Martin Corp. is $6,999,978;
 
the contract awarded to Bol inger Shipyards Lockport LLC, is $6,996,832; the contract awarded to Bol inger Shipyards Lockport LLC, is $6,996,832;
 
the contract awarded to Marinette Marine Corp. is $6,999,783; the contract awarded to Marinette Marine Corp. is $6,999,783;
 
the contract awarded to Gibbs & Cox Inc. is $6,989,499; and the contract awarded to Gibbs & Cox Inc. is $6,989,499; and
 
the contract awarded to Austal USA LLC is $6,999,020. the contract awarded to Austal USA LLC is $6,999,020.
Work will be performed in various locations in the contiguous U.S. in accordance with Work will be performed in various locations in the contiguous U.S. in accordance with
each contract and is expected to be complete by August 2021, and if option(s) are exercised, each contract and is expected to be complete by August 2021, and if option(s) are exercised,
work is expected to be complete by May 2022. work is expected to be complete by May 2022.
Fiscal 2020 research, development, test and evaluation (Navy) funds in the amount Fiscal 2020 research, development, test and evaluation (Navy) funds in the amount
$41,985,112 will be obligated at time of award and will not expire at the end of the current $41,985,112 will be obligated at time of award and will not expire at the end of the current
fiscal year. fiscal year.
These contracts were competitively procured via Federal Business These contracts were competitively procured via Federal Business ~~Opportunities~~Oppo rtunities (now (now
beta.SAM.gov) with eight offers received. The Naval Sea Systems Command, beta.SAM.gov) with eight offers received. The Naval Sea Systems Command,
Washington, D.C., is the contracting activity.Washington, D.C., is the contracting activity.2829
A September 4, 2020, press report about the contract awards stated A September 4, 2020, press report about the contract awards stated
“These contracts were established in order to refine specifications and requirements for a “These contracts were established in order to refine specifications and requirements for a
Large Unmanned Surface Vessel and conduct reliability studies informed by industry Large Unmanned Surface Vessel and conduct reliability studies informed by industry
partners with potential solutions prior to release of a Detail Design and Construction partners with potential solutions prior to release of a Detail Design and Construction
contract,” Navy spokesman Capt. Danny Hernandez told USNI News in a statement. contract,” Navy spokesman Capt. Danny Hernandez told USNI News in a statement.

2728 Mallory Shelbourne, “Navy to Submit Report in April on Unmanned CONOPS Development,” Mallory Shelbourne, “Navy to Submit Report in April on Unmanned CONOPS Development,” Inside Defense, ,
January 13, 2020. See also David B. Larter, “January 13, 2020. See also David B. Larter, “ Fleet Commander Directs US Navy’s Surface Force to Develop Fleet Commander Directs US Navy’s Surface Force to Develop ~~Concepts~~Conce pts
for Unmanned Ships,” for Unmanned Ships,” Defense News, January 2, 2020; David B. Larter, “ Unclear on Unmanned: T he US Navy’s Plans , January 2, 2020; David B. Larter, “ Unclear on Unmanned: T he US Navy’s Plans
for Robot Ships Are on the Rocks,” for Robot Ships Are on the Rocks,” Defense News, January 10, 2021; David B. Larter, “ Unclear on Unmanned, Part 2: , January 10, 2021; David B. Larter, “ Unclear on Unmanned, Part 2:
On Capitol Hill, the US Navy Has a Credibility Problem,” On Capitol Hill, the US Navy Has a Credibility Problem,” Defense News, January 11, 2021; David B. Larter, “ Unclear , January 11, 2021; David B. Larter, “ Unclear
on Unmanned, Part 3: A New Year’s Resolution to Slow Down,” on Unmanned, Part 3: A New Year’s Resolution to Slow Down,” Defense News, January 11, 2021. , January 11, 2021.
2829 Department of Defense, “ Contracts For Sept. 4, 2020,” accessed September 8, 2020. T he announcement is posted as Department of Defense, “ Contracts For Sept. 4, 2020,” accessed September 8, 2020. T he announcement is posted as
a single, unbroken paragraph. In reprinting the text of the announcement, CRS broke the announcement into the smaller a single, unbroken paragraph. In reprinting the text of the announcement, CRS broke the announcement into the smaller
paragraphs shown here to make the announcement easier toparagraphs shown here to make the announcement easier to read. read.
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link to page 7 link to page 7 Navy Large Unmanned Surface and Undersea Vehicles

“The studies effort is designed to provide robust collaboration with government and “The studies effort is designed to provide robust collaboration with government and
industry to assist in maturation of platform specifications, and ensure achievable technical industry to assist in maturation of platform specifications, and ensure achievable technical
requirements are in place for a separate LUSV DD&C competition.”… requirements are in place for a separate LUSV DD&C competition.”…
“The LUSV studies will support efforts that facilitate requirements refinement, “The LUSV studies will support efforts that facilitate requirements refinement,
development of an affordable and effective platform; development of an affordable and effective platform; ~~prov ide~~provide opportunities to continue opportunities to continue
maturing the performance specifications and conduct analysis of alternative design maturing the performance specifications and conduct analysis of alternative design
approaches; facilitate reliability improvements and plans for government -furnished approaches; facilitate reliability improvements and plans for government -furnished
equipment and mechanical and electrical systems; and support development of cost equipment and mechanical and electrical systems; and support development of cost
reduction and other affordability initiatives,” Hernandez said. reduction and other affordability initiatives,” Hernandez said.2930
MUSV Program
The Navy defines MUSVs as being 45 feet to 190 feet long, with displacements of roughly 500 The Navy defines MUSVs as being 45 feet to 190 feet long, with displacements of roughly 500
tons. The Navy wants MUSVs, like LUSVs, to be low-cost, high-endurance, reconfigurable ships tons. The Navy wants MUSVs, like LUSVs, to be low-cost, high-endurance, reconfigurable ships
that can accommodate various payloads. Initial payloads for MUSVs are to be intel igence, that can accommodate various payloads. Initial payloads for MUSVs are to be intel igence,
surveil ance and reconnaissance (ISR) payloads and electronic warfare (EW) systems. The Navy surveil ance and reconnaissance (ISR) payloads and electronic warfare (EW) systems. The Navy
is pursuing the MUSV program as a rapid prototyping effort under what is known as Section 804 is pursuing the MUSV program as a rapid prototyping effort under what is known as Section 804
middle tier acquisition authority.middle tier acquisition authority.3031 The first MUSV prototype was funded in FY2019 and the The first MUSV prototype was funded in FY2019 and the
Navy wants fund the second prototype in FY2023. Navy wants fund the second prototype in FY2023.
The MUSV program is building on development work by the Defense Advanced Research The MUSV program is building on development work by the Defense Advanced Research
Projects Agency (DARPA) under its Anti-Submarine Warfare Continuous Trail Unmanned Vessel Projects Agency (DARPA) under its Anti-Submarine Warfare Continuous Trail Unmanned Vessel
(ACTUV) effort and the Office of Naval Research (ONR) under its Medium Displacement USV (ACTUV) effort and the Office of Naval Research (ONR) under its Medium Displacement USV
effort. As shown ieffort. As shown in Figure 1, this work led to the design, construction, and testing of the , this work led to the design, construction, and testing of the
prototype Sea Hunter medium displacement USV, which has a reported length of 132 feet (about prototype Sea Hunter medium displacement USV, which has a reported length of 132 feet (about
40.2 meters) and a displacement of about 140 tons. 40.2 meters) and a displacement of about 140 tons.3132 The Navy’s MUSV program is also to The Navy’s MUSV program is also to
employ a fleet-ready command and control (C2) solution for USVs that was developed by the employ a fleet-ready command and control (C2) solution for USVs that was developed by the
Strategic Capabilities Office for the LUSV program. Strategic Capabilities Office for the LUSV program.
~~On July 13, 2020, the Navy announced that it had awarded “a $34,999,948 contract to L3[Harris]~~
~~Technologies, Inc. for the development of a single Medium Unmanned Surface Vehicle (MUSV)~~
~~prototype, with options to procure up to eight additional MUSVs. The award follows a full and~~
~~open competitive procurement process. Funding is in place on this contract for the initial~~
~~prototype. With al options exercised, the contract is valued at $281,435,446 if additional funding~~
~~is provided in future budget years.”32 The Navy reportedly stated that there were five competitors~~

29The Navy states that MUSV is an unmanned sensor-ship, built to carry modular payloads, and standardized for easy integration with current Navy systems. Inexpensive compared to manned combatants, they can be built in numbers, quickly adding capacity to the Fleet. MUSV delivers a distributed sensor network that can navigate and operate with man in/on the loop oversight, and will be capable of weeks -long deployments and trans -oceanic transits. The Navy awarded a design and fabrication contract to L3Harris to develop the first MUSV prototype in accordance with Interim Top Level Requirements approved in 2019. The MUSV prototype is targeted for delivery in FY 2023.33 30 Mallory Shelbourne, “6 Companies Awarded Contracts to Start Work on Large Unmanned Surface Vehicle,” Mallory Shelbourne, “6 Companies Awarded Contracts to Start Work on Large Unmanned Surface Vehicle,” USNI
News, September 4, 2020. See also Paul McLeary, “ Navy Awards Study Contracts On Large Unmanned Ship, September 4, 2020. See also Paul McLeary, “ Navy Awards Study Contracts On Large Unmanned Ship —As —As
Congress Watches Closely,” Congress Watches Closely,” Breaking Defense, September 4, 2020. , September 4, 2020.
3031 T his is a reference to Section 804 of the FY2016 National Defense Authorization Act ( S. 1356/P.L. 114-92 of T his is a reference to Section 804 of the FY2016 National Defense Authorization Act ( S. 1356/P.L. 114-92 of
November 25, 2015). T he rapid prototyping authority provided by that section is now codified at 10 U.S.C. 2302 note. November 25, 2015). T he rapid prototyping authority provided by that section is now codified at 10 U.S.C. 2302 note.
For more on this authority, see “ Middle T ier Acquisition (Section 804),” MIT RE, undated, accessed May 24, 2019, at For more on this authority, see “ Middle T ier Acquisition (Section 804),” MIT RE, undated, accessed May 24, 2019, at
https://aida.mitre.org/middle-tier/; and “ Acquisition Process, Middle T ier Acquisition (Section 804),” AcqNotes, https://aida.mitre.org/middle-tier/; and “ Acquisition Process, Middle T ier Acquisition (Section 804),” AcqNotes,
updated March 26, 2019, accessed May 24, 2019, at http://acqnotes.com/acqnote/acquisitions/middle-tier-acquisitions. updated March 26, 2019, accessed May 24, 2019, at http://acqnotes.com/acqnote/acquisitions/middle-tier-acquisitions.
31 32 See, for example, Megan Eckstein, “ Sea Hunter Unmanned Ship Continues Autonomy T esting as NAVSEA Moves See, for example, Megan Eckstein, “ Sea Hunter Unmanned Ship Continues Autonomy T esting as NAVSEA Moves
Forward with Draft RFP ,” Forward with Draft RFP ,” USNI News, April 29, 2019; Evan Milberg, “ DARPA “ Sea Hunter,” World’s Largest , April 29, 2019; Evan Milberg, “ DARPA “ Sea Hunter,” World’s Largest
Autonomous Ship, T ransferred to U.S. NavyAutonomous Ship, T ransferred to U.S. Navy ,” ,” Com posites Manufacturing Magazine, February 12, 2018; Sydney J. , February 12, 2018; Sydney J.
Freedberg Jr., “ DSD [Deputy Secretary of Defense] Work Embraces DARPA’s Robot Boat, Sea Hunter,” Freedberg Jr., “ DSD [Deputy Secretary of Defense] Work Embraces DARPA’s Robot Boat, Sea Hunter,” Breaking
Defense, April 7, 2016. , April 7, 2016.
~~32 PEO Unmanned and Small Combatants Public Affairs, “ Navy Awards Contract for Medium Unmanned Surface~~
~~Vehicle Prototype,” Naval Sea Systems Command, July 13, 2020.~~
~~Congressional Research Service~~
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~~link to page 19 link to page 7~~33 Statement of Fredrick J. Stefany, Acting Assistant Secretary of the Navy for Research, Develop ment and Acquisition (ASN [RD&A]) and Vice Admiral James W. Kilby, Deputy Ch ief of Naval Operations for Warfare Systems and Congressional Research Service 16 link to page 21 Navy Large Unmanned Surface and Undersea Vehicles On July 13, 2020, the Navy announced that it had awarded “a $34,999,948 contract to L3[Harris] Technologies, Inc. for the development of a single Medium Unmanned Surface Vehicle (MUSV) prototype, with options to procure up to eight additional MUSVs. The award follows a full and open competitive procurement process. Funding is in place on this contract for the initial prototype. With al options exercised, the contract is valued at $281,435,446 if additional funding is provided in future budget years.”34 The Navy reportedly stated that there were five competitors

~~Navy Large Unmanned Surface and Undersea Vehicles~~

for the contract, but did not identify the other four. for the contract, but did not identify the other four.3335 Figure 810 shows a rendering of L3Harris’s shows a rendering of L3Harris’s
design concept. design concept.
Figure 810. Rendering of L3Harris Design Concept for MUSV

Source: L3Harris Technologies, “L3Harris Technologies AwardedL3Harris Technologies, “L3Harris Technologies Awarded Medium Unmanned Surface Vehicle Program Medium Unmanned Surface Vehicle Program
from US Navy,” August 18, 2020. See also Richard R. Burgess, “Navy’s Medium USV to Be Based on Commercial from US Navy,” August 18, 2020. See also Richard R. Burgess, “Navy’s Medium USV to Be Based on Commercial
Vehicle,” Vehicle,” Seapower, August 19, 2020. , August 19, 2020.
L3Harris states that L3Harris states that
will integrate the company’s ASView™ autonomy technology into a purpose-built 195- will integrate the company’s ASView™ autonomy technology into a purpose-built 195-
foot commercially derived vehicle from a facility along the Gulf Coast of Louisiana. The foot commercially derived vehicle from a facility along the Gulf Coast of Louisiana. The
MUSV will provide intelligence, surveillance and reconnaissance to MUSV will provide intelligence, surveillance and reconnaissance to ~~the~~t he fleet while fleet while
maneuvering autonomously and complying with international Collision Regulations, even maneuvering autonomously and complying with international Collision Regulations, even
in operational environments.… in operational environments.…
L3Harris will be the systems integrator and provide the mission autonomy and perception L3Harris will be the systems integrator and provide the mission autonomy and perception
technology as the prime contractor on the program. The program team includes Gibbs & technology as the prime contractor on the program. The program team includes Gibbs &
Cox and Incat Crowther who will provide the ship design and Swiftships will complete the Cox and Incat Crowther who will provide the ship design and Swiftships will complete the
construction of the vehicle. construction of the vehicle.
L3Harris is a world leader in actively powered Unmanned Surface Vehicle (USV) systems, L3Harris is a world leader in actively powered Unmanned Surface Vehicle (USV) systems,
with over 115 USVs delivered worldwide. L3Harris’ USVs are actively serving the Navy, with over 115 USVs delivered worldwide. L3Harris’ USVs are actively serving the Navy,
universities, research institutions and commercial businesses.universities, research institutions and commercial businesses.34
~~XLUUV Program~~
~~The XLUUV program, also known as the Orca program, was established to address a Joint~~
~~Emergent Operational Need (JEON). As shown in Figure 2, the Navy defines XLUUVs as UUVs~~
~~with a diameter of more than 84 inches, meaning that XLUUVs are to be too large to be launched~~
~~from a manned Navy submarine.35 Consequently, XLUUVs instead wil transported to a forward~~
~~operating port and then launched from pier. The Department of the Navy’s March 16, 2021,~~

3336 Lieutenant General Eric M. Smith, Deputy Commandant Combat Development and Integration & Commanding General, Marine Corps Combat Development Command, before the House Armed Services Committee Subcommittee on Seapower and Projection Forces, on Department of the Navy Unmanned Systems, March 18, 2021, p. 15. 34 PEO Unmanned and Small Combatants Public Affairs, “ Navy Awards Contract for Medium Unmanned Surface Vehicle Prototype,” Naval Sea Systems Command, July 13, 2020. 35 Rich Abott, “ L3Harris Wins $35 Million MUSV Prototype Contract,” Rich Abott, “ L3Harris Wins $35 Million MUSV Prototype Contract,” Defense Daily, July 13, 2020. See also Sam , July 13, 2020. See also Sam
LaGrone, “ Navy Awards Contract for First Vessel In Its Family of Unmanned Surface Vehicles,” LaGrone, “ Navy Awards Contract for First Vessel In Its Family of Unmanned Surface Vehicles,” USNI News, July 14 , July 14
(updated July 15), 2020; Paul McLeary, “ Navy Inks Deal For New Unmanned Fleet ,” (updated July 15), 2020; Paul McLeary, “ Navy Inks Deal For New Unmanned Fleet ,” Breaking Defense, July 13, 2020. , July 13, 2020.
3436 L3Harris T echnologies, “L3Harris T echnologies Awarded Medium Unmanned Surface Vehicle Program from US L3Harris T echnologies, “L3Harris T echnologies Awarded Medium Unmanned Surface Vehicle Program from US
~~Navy,” August 18, 2020.~~
~~35 Navy submarines equipped with large-diameter vertical launch tubes can launch missiles or other payloads with~~
~~diameters of up to about 83 inches.~~
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Congressional Research Service 17 link to page 7 link to page 23 link to page 24 link to page 24 Navy Large Unmanned Surface and Undersea Vehicles XLUUV Program The XLUUV program, also known as the Orca program, was established to address a Joint Emergent Operational Need (JEON). As shown in Figure 2, the Navy defines XLUUVs as UUVs with a diameter of more than 84 inches, meaning that XLUUVs are to be too large to be launched from a manned Navy submarine.37 Consequently, XLUUVs instead wil transported to a forward operating port and then launched from pier. The Department of the Navy’s March 16, 2021, unmanned campaign framework document states that the XLUUV wil be designed “to unmanned campaign framework document states that the XLUUV wil be designed “to
accommodate a variety of large payloads….”accommodate a variety of large payloads….”3638 The Navy testified on March 18, 2021, that mines wil be the initial payload for XLUUVs.39
The first five XLUUVs were funded in FY2019 through the Navy’s research and development The first five XLUUVs were funded in FY2019 through the Navy’s research and development
appropriation account. The Navy conducted a competition for the design of the XLUUV, and appropriation account. The Navy conducted a competition for the design of the XLUUV, and
announced on February 13, 2019, that it had selected Boeing to fabricate, test, and deliver the first announced on February 13, 2019, that it had selected Boeing to fabricate, test, and deliver the first
four Orca XLUUVs and associated support elements.four Orca XLUUVs and associated support elements.3740 (The other bidder was a team led by (The other bidder was a team led by
Lockheed Martin.) On March 27, 2019, the Navy announced that the award to Boeing had been Lockheed Martin.) On March 27, 2019, the Navy announced that the award to Boeing had been
expanded to include the fifth Orca.expanded to include the fifth Orca.3841 Boeing has partnered with the Technical Solutions division Boeing has partnered with the Technical Solutions division
of Huntington Ingal s Industries (HII) to build Orca XLUUVs.of Huntington Ingal s Industries (HII) to build Orca XLUUVs.3942 (A separate division of HII— (A separate division of HII—
Newport News Shipbuilding (NNS) of Newport News, VA—is one of the Navy’s two submarine Newport News Shipbuilding (NNS) of Newport News, VA—is one of the Navy’s two submarine
builders.) builders.)
The Navy wants procure additional XLUUVs at a rate of two per year starting in FY2023. The The Navy wants procure additional XLUUVs at a rate of two per year starting in FY2023. The
Navy’s FY2021 budget submission does not include funding for the procurement of additional Navy’s FY2021 budget submission does not include funding for the procurement of additional
XLUUVs in FY2021 or FY2022. The Navy is proposing to fund the procurement of XLUUVs in XLUUVs in FY2021 or FY2022. The Navy is proposing to fund the procurement of XLUUVs in
FY2023 and subsequent years through the Other Procurement, Navy (OPN) appropriation FY2023 and subsequent years through the Other Procurement, Navy (OPN) appropriation
account. account.
In June 2020, it was reported that a study of future Navy force-level requirements led by the Cost In June 2020, it was reported that a study of future Navy force-level requirements led by the Cost
Assessment and Program Evaluation (CAPE) office within the Office of the Secretary of Defense Assessment and Program Evaluation (CAPE) office within the Office of the Secretary of Defense
(OSD) recommended a future Navy with, among other things, up to 50 XLUUVs. (OSD) recommended a future Navy with, among other things, up to 50 XLUUVs.4043
Boeing’s Orca XLUUV design wil be informed by (but Boeing’s Orca XLUUV design wil be informed by (but ~~likely~~ wil differ in certain respects from) the differ in certain respects from) the
design of Boeing’s Echo Voyager UUV design of Boeing’s Echo Voyager UUV (Figure 911, Figure 1012, a, and Figure 11~~).41~~
13).44 Echo Voyager is 51 feet long and has a rectangular cross section of 8.5 feet by 8.5 feet, a weight Echo Voyager is 51 feet long and has a rectangular cross section of 8.5 feet by 8.5 feet, a weight
in the air of 50 tons, and a range of up to 6,500 nautical miles. It can accommodate a modular in the air of 50 tons, and a range of up to 6,500 nautical miles. It can accommodate a modular
payload section up to 34 feet in length, increasing its length to as much as 85 feet. A 34-foot payload section up to 34 feet in length, increasing its length to as much as 85 feet. A 34-foot
modular payload section provides about 2,000 cubic feet of internal payload volume; a shorter modular payload section provides about 2,000 cubic feet of internal payload volume; a shorter
~~(14-foot) section provides about 900 cubic feet. Echo Voyager can also accommodate external~~
~~payloads.42~~

~~36 Department of the Navy, Department of the Navy Unmanned Campaign Framework, March 16, 2021, p. 16.~~
~~37 Department of Defense, Contracts for Feb. 13, 2019.~~
~~38 Department of Defense, Contracts for March 27, 2019.~~
39(14-foot) section provides Navy,” August 18, 2020. 37 Navy submarines equipped with large-diameter vertical launch tubes can launch missiles or other payloads with diameters of up to about 83 inches. 38 Department of the Navy, Department of the Navy Unmanned Campaign Framework, March 16, 2021, p. 16. 39 Richard R. Burgess, “ Navy’s Orca XLUUV to Have Mine-Laying Mission, Adm. Kilby Says,” Seapower, March 18, 2021. 40 Department of Defense, Contracts for Feb. 13, 2019. 41 Department of Defense, Contracts for March 27, 2019. 42 See, for example, Hugh Lessig, “Shipbuilder Lends a Hand with Rise of Robot Submarines,” See, for example, Hugh Lessig, “Shipbuilder Lends a Hand with Rise of Robot Submarines,” Defense News, May 26, , May 26,
2019. 2019.
4043 David B. Larter, “ T o Compete with China, An Internal Pentagon Study Looks to Pour Money into Robot David B. Larter, “ T o Compete with China, An Internal Pentagon Study Looks to Pour Money into Robot
Submarines,” Submarines,” Defense News, June 1, 2020. , June 1, 2020.
4144 See, for example, Hugh Lessig, “Shipbuilder Lends a Hand with Rise of Robot Submarines,” See, for example, Hugh Lessig, “Shipbuilder Lends a Hand with Rise of Robot Submarines,” Defense News, May 26, , May 26,
2019. 2019.
~~42 Source: Boeing product sheet on Echo Voyager, accessed May 31, 2019, at https://www.boeing.com/resources/~~
~~boeingdotcom/defense/autonomous-systems/echo-voyager/echo_voyager_product_sheet.pdf.~~
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~~Figure 9~~ Congressional Research Service 18 Navy Large Unmanned Surface and Undersea Vehicles about 900 cubic feet. Echo Voyager can also accommodate external payloads.45 The Navy states that the XLUUV is based off Boeing’s Echo Voyager, but incorporates significant changes to support military mission requirements. This has resulted in challenges in establishing the manufacturing process, building up the industrial base, and aligning material purchases to produce the first group of prototype vehicles. Orca represents the leading edge of autonomous maritime vehicle technology and will have extended range and a reconfigurable, modular payload bay to support multiple payloads and a variety of missions.46 Figure 11. Boeing Echo Voyager UUV

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

~~Source:~~ ~~Boeing photograph posted~~ 45 Source: Boeing product sheet on Echo Voyager, accessed May 31, 2019, at https://www.boeing.com/resources/boeingdotcom/ ~~at https://www.boeing.com/~~defense/autonomous-systems/echo-voyager/defense/autonomous-systems/echo-voyager/
~~index.page#/gal ery.~~
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~~Figure 11~~echo_voyager_product_sheet.pdf. 46 Statement of Fredrick J. Stefany, Acting Assistant Secretary of the Navy for Research, Development and Acquisition (ASN [RD&A]) and Vice Admiral James W. Kilby, Deputy Chief of Naval Operations for Warfare Systems and Lieutenant General Eric M. Smith, Deputy Commandant Combat Development and Integration & Commanding General, Marine Corps Combat Development Command, before the House Armed Services Committee Subcommittee on Seapower and Projection Forces, on Department of the Navy Unmanned Systems, March 18, 2021, p. 12. Congressional Research Service 19 link to page 25 Navy Large Unmanned Surface and Undersea Vehicles Figure 12. Boeing Echo Voyager UUV Source: Boeing photograph posted at https://www.boeing.com/defense/autonomous-systems/echo-voyager/index.page#/gal ery. Figure 13. Boeing Echo Voyager UUV

Source: Navy briefing entitled “Unmanned Maritime Systems,” Howard Berkof, Deputy Program Manager, Navy briefing entitled “Unmanned Maritime Systems,” Howard Berkof, Deputy Program Manager,
Unmanned Maritime Systems, PMS 406, Distribution A: Approved for public release; distribution unlimited, Unmanned Maritime Systems, PMS 406, Distribution A: Approved for public release; distribution unlimited,
October 23, 2019, slide 5. October 23, 2019, slide 5.
FY2021-FY2025 Funding
Table 1 shows FY2021-FY2025 requested and programmed funding for the large UV programs shows FY2021-FY2025 requested and programmed funding for the large UV programs
covered in this report. covered in this report.
Congressional Research Service 20 Navy Large Unmanned Surface and Undersea Vehicles Table 1. FY2021-FY2025 Requested and Programmed Funding for Large UVs
Mil ions of dol ars, rounded to nearest tenth Mil ions of dol ars, rounded to nearest tenth
FY21-
FY25
Program
FY21
FY22
FY23
FY24
FY25
total
LUSV research and development funding LUSV research and development funding
238.6 238.6
377.2 377.2
144.5 144.5
198.7 198.7
134.9 134.9
1,093.9 1,093.9
(Quantity—prototype LUSVs)
(2)
(1)
(0)
(0)
(0)
(3)
LUSV (procurement funding LUSV (procurement funding
0 0
0 0
455.0 455.0
373.6 373.6
536.6 536.6
1,365.2 1,365.2
(Quantity—deployable LUSVs)
(0)
(0)
(2)
(2)
(3)
(7)
MUSV research and development funding MUSV research and development funding
26.3 26.3
30.0 30.0
43.0 43.0
43.9 43.9
44.7 44.7
187.9 187.9
(Quantity—prototype MUSVs)
(0)
(0)
(1)
(0)
(0)
(1)
LUSV and MUSV enabling technologies LUSV and MUSV enabling technologies
199.1 199.1
122.8 122.8
192.8 192.8
77.9 77.9
80.9 80.9
673.9 673.9
research and development funding research and development funding
XLUUV research and development funding XLUUV research and development funding
115.9 115.9
43.0 43.0
78.5 78.5
77.0 77.0
7.7 7.7
322.1 322.1
(Quantity)
(0)
(0)
(0)
(0)
(0)
(0)
XLUUV procurement funding XLUUV procurement funding
0 0
0 0
158.5 158.5
162.6 162.6
232.8 232.8
552.9 552.9
(Quantity)
(0)
(0)
(2)
(2)
(2)
(6)
Source: Navy FY2021 budget submission. LUSV is Project 3066 within PE (Program Element) 0603178N (line 27 Navy FY2021 budget submission. LUSV is Project 3066 within PE (Program Element) 0603178N (line 27
in the Navy’s FY2021 research and development account). MUSV is Project 3428 within PE 0603178N (line 27). in the Navy’s FY2021 research and development account). MUSV is Project 3428 within PE 0603178N (line 27).
LUSV and MUSV enabling technologies is Project 3067 within PE 0603178N (line 27). XLUUV is Project 3394 LUSV and MUSV enabling technologies is Project 3067 within PE 0603178N (line 27). XLUUV is Project 3394
within PE 0604536N (line 89). within PE 0604536N (line 89).
Note: Totals may not add due to rounding. Totals may not add due to rounding.
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Issues for Congress
The Navy’s proposals for developing and procuring the large UVs covered in this report pose a The Navy’s proposals for developing and procuring the large UVs covered in this report pose a
number of oversight issues for Congress, including those discussed below. number of oversight issues for Congress, including those discussed below.
Analytical Basis for More Distributed Fleet Architecture
One potential oversight issue for Congress concerns the analytical basis for the Navy’s desire to One potential oversight issue for Congress concerns the analytical basis for the Navy’s desire to
shift to a more distributed fleet architecture featuring a significant contribution from large UVs. shift to a more distributed fleet architecture featuring a significant contribution from large UVs.
Potential oversight questions for Congress include the following: Potential oversight questions for Congress include the following:
 What Navy analyses led to the Navy’s decision to shift toward a more distributed  What Navy analyses led to the Navy’s decision to shift toward a more distributed
architecture? architecture?
 What did these analyses show regarding the relative costs, capabilities, and risks  What did these analyses show regarding the relative costs, capabilities, and risks
of the Navy’s current architecture and the more distributed architecture? of the Navy’s current architecture and the more distributed architecture?
 How wel developed, and how wel tested, are the operational concepts  How wel developed, and how wel tested, are the operational concepts
associated with the more distributed architecture? associated with the more distributed architecture?
Concept of Operations (CONOPS)
Another potential oversight issue for Congress concerns the Navy’s concept of operations Another potential oversight issue for Congress concerns the Navy’s concept of operations
(CONOPS) for these large UVs, meaning the Navy’s understanding at a detailed level of how it (CONOPS) for these large UVs, meaning the Navy’s understanding at a detailed level of how it
wilwil operate these UVs in conjunction with manned Navy ships in various operational scenarios, operate these UVs in conjunction with manned Navy ships in various operational scenarios,
Congressional Research Service 21 link to page 11 Navy Large Unmanned Surface and Undersea Vehicles and consequently how, exactly, these UVs wil fit into the Navy’s overal force structure and and consequently how, exactly, these UVs wil fit into the Navy’s overal force structure and
operations. Potential oversight questions for Congress include the following: operations. Potential oversight questions for Congress include the following:
 How fully has the Navy developed its CONOPS for these large UVs? What  How fully has the Navy developed its CONOPS for these large UVs? What
activities is the Navy undertaking to develop its CONOPS for them? activities is the Navy undertaking to develop its CONOPS for them?
 What is the Navy’s CONOPS for using these large UVs in day-to-day,  What is the Navy’s CONOPS for using these large UVs in day-to-day,
noncombat operations? noncombat operations?
 How sensitive are the performance requirements that the Navy has established  How sensitive are the performance requirements that the Navy has established
for these large UVs to potential changes in their CONOPS that may occur as the for these large UVs to potential changes in their CONOPS that may occur as the
Navy continues to develop the CONOPS? How likely is it, if at al , that the Navy Navy continues to develop the CONOPS? How likely is it, if at al , that the Navy
wil have to change the performance requirements for these large UVs as a wil have to change the performance requirements for these large UVs as a
consequence of more fully developing their CONOPS? consequence of more fully developing their CONOPS?
As mentioned earlier, in May 2019, the Navy established a surface development squadron to help As mentioned earlier, in May 2019, the Navy established a surface development squadron to help
develop operational concepts for LUSVs and MUSVs. The squadron wil initial y consist of a develop operational concepts for LUSVs and MUSVs. The squadron wil initial y consist of a
Zumwalt (DDG-1000) class destroyer and one Sea Hunter prototype medium displacement USV Zumwalt (DDG-1000) class destroyer and one Sea Hunter prototype medium displacement USV
(Figure 4). A second Sea Hunter prototype wil reportedly be added around the end of FY2020, . A second Sea Hunter prototype wil reportedly be added around the end of FY2020,
and LUSVs and MUSVs wil then be added as they become available.and LUSVs and MUSVs wil then be added as they become available.4347 A September 9, 2020, A September 9, 2020,
press report states: press report states:
Development squadrons working with unmanned underwater and surface vehicles are Development squadrons working with unmanned underwater and surface vehicles are
moving out quickly to develop concepts of operations and human-machine interfaces, even moving out quickly to develop concepts of operations and human-machine interfaces, even

~~43 See, for example, Megan Eckstein, “Navy Stands Up Surface Development Squadron for DDG-1000, Unmanned~~
~~Experimentation,” USNI News, May 22, 2019; David B. Larter, “With Billions Planned in Funding, the US Navy~~
~~Charts Its Unmanned Future,” Defense News, May 6, 2019. See also Michael Fabey, “USN Seeks Path for Unmanned~~
~~Systems Operational Concepts,” Jane’s Navy International, May 16, 2019.~~
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as they’re still using prototypes ahead of the delivery of fleet USVs and UUVs, officials as they’re still using prototypes ahead of the delivery of fleet USVs and UUVs, officials
said this week. said this week.
Capt. Hank Adams, the commodore of Surface Development Squadron One Capt. Hank Adams, the commodore of Surface Development Squadron One
(SURFDEVRON), is planning an upcoming weeks -long experiment with sailors in an (SURFDEVRON), is planning an upcoming weeks -long experiment with sailors in an
unmanned operations center (UOC) ashore commanding and controlling an Overlord USV unmanned operations center (UOC) ashore commanding and controlling an Overlord USV
that the Navy hasn’t even taken ownership of from the Pentagon, in a bid to get a head start that the Navy hasn’t even taken ownership of from the Pentagon, in a bid to get a head start
on figuring out what the command and control process looks like and what the supervisory on figuring out what the command and control process looks like and what the supervisory
control system must allow sailors to do. control system must allow sailors to do.
And Cmdr. Rob Patchin, commanding officer of Unmanned Undersea Vehicles Squadron And Cmdr. Rob Patchin, commanding officer of Unmanned Undersea Vehicles Squadron
One (UUVRON-1), is pushing the limits of his test vehicles to send the program office a One (UUVRON-1), is pushing the limits of his test vehicles to send the program office a
list of vehicle behaviors that his operators need their UUVs to have that the commercial list of vehicle behaviors that his operators need their UUVs to have that the commercial
prototypes today don’t have. prototypes today don’t have.
The two spoke during a panel at the Association for Unmanned Vehicle Systems The two spoke during a panel at the Association for Unmanned Vehicle Systems
International (AUVSI) annual defense conference on Tuesday, and made clear that they International (AUVSI) annual defense conference on Tuesday, and made clear that they
want to have the fleet trained and ready to start using UUVs and USVs when industry is want to have the fleet trained and ready to start using UUVs and USVs when industry is
ready to deliver them.ready to deliver them.4448
An October 30, 2020, press report stated: An October 30, 2020, press report stated:
The Navy is set to complete and release a concept of operations for the medium and large The Navy is set to complete and release a concept of operations for the medium and large
unmanned surface vehicles in “the next few months,” a Navy spokesman told Inside unmanned surface vehicles in “the next few months,” a Navy spokesman told Inside
Defense. Defense.
47 See, for example, Megan Eckstein, “Navy Stands Up Surface Development Squadron for DDG-1000, Unmanned Experimentation,” USNI News, May 22, 2019; David B. Larter, “With Billions Planned in Funding, the US Navy Charts Its Unmanned Future,” Defense News, May 6, 2019. See also Michael Fabey, “USN Seeks Path for Unmanned Systems Operational Concepts,” Jane’s Navy International, May 16, 2019. 48 Megan Eckstein, “ USV, UUV Squadrons T esting Out Concepts Ahead of Delivery of T heir Vehicles,” USNI News, September 9, 2020. Congressional Research Service 22 Navy Large Unmanned Surface and Undersea Vehicles Alan Baribeau, a spokesman for Naval Sea Systems Command, said the Navy extended Alan Baribeau, a spokesman for Naval Sea Systems Command, said the Navy extended
the due date to allow for more flexibility during the COVID-19 pandemic and allow for the due date to allow for more flexibility during the COVID-19 pandemic and allow for
sufficient time for review and staffing…. sufficient time for review and staffing….
The CONOPS is currently undergoing flag-level review after completing action officer- The CONOPS is currently undergoing flag-level review after completing action officer-
level review as well as O6-level review, Baribeau said.level review as well as O6-level review, Baribeau said.4549
Accelerated Acquisition Strategies and Funding Method
Another potential oversight issue for Congress concerns the accelerated acquisition strategies that Another potential oversight issue for Congress concerns the accelerated acquisition strategies that
the Navy wants to use for these large UV programs. Potential oversight questions for Congress the Navy wants to use for these large UV programs. Potential oversight questions for Congress
include the following: include the following:
 What are the potential costs, benefits, and risks of pursuing these accelerated  What are the potential costs, benefits, and risks of pursuing these accelerated
strategies rather than a more traditional acquisition approach that would spend strategies rather than a more traditional acquisition approach that would spend
more time developing the technologies and operational concepts for these UVs more time developing the technologies and operational concepts for these UVs
prior to putting them into serial production? How are those considerations prior to putting them into serial production? How are those considerations
affected by the shift in the international security environment from the post-Cold affected by the shift in the international security environment from the post-Cold
War era to the new era of renewed major power competition?War era to the new era of renewed major power competition?4650
 Are the Navy’s proposed changes to the LUSV’s accelerated acquisition strategy  Are the Navy’s proposed changes to the LUSV’s accelerated acquisition strategy
appropriate and sufficient? appropriate and sufficient?

~~44 Megan Eckstein, “ USV, UUV Squadrons T esting Out Concepts Ahead of Delivery of T heir Vehicles,” USNI News,~~
~~September 9, 2020.~~
~~45 Aidan Quigley, “ Navy Finishing Unmanned Surface Vehicles Concept of Operations ‘in Next Few Months,’”~~ ~~Inside~~
~~Defense, October 30, 2020.~~
~~46 For more on this shift, see CRS Report R43838,~~ ~~Renewed Great Power Competition: Implications for Defense—~~
~~Issues for Congress, by Ronald O'Rourke.~~
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 To what degree, if any, can these large UV programs contribute to new  To what degree, if any, can these large UV programs contribute to new
approaches for defense acquisition that are intended to respond to the new approaches for defense acquisition that are intended to respond to the new
international security environment? international security environment?
Technical, Schedule, and Cost Risk
Another potential oversight issue for Congress concerns the amount of technical, schedule, and Another potential oversight issue for Congress concerns the amount of technical, schedule, and
cost risk in these programs, particularly given that these platforms potential y are to operate at sea cost risk in these programs, particularly given that these platforms potential y are to operate at sea
unmanned and semi-autonomously or autonomously for extended periods of time. Potential unmanned and semi-autonomously or autonomously for extended periods of time. Potential
oversight questions for Congress include the following: oversight questions for Congress include the following:
 How much risk of this kind do these programs pose, particularly given the  How much risk of this kind do these programs pose, particularly given the
enabling technologies that need to be developed for them? enabling technologies that need to be developed for them?
 In addition to the Navy’s proposed changes to the LUSV’s acquisition strategy,  In addition to the Navy’s proposed changes to the LUSV’s acquisition strategy,
what is the Navy doing to mitigate or manage cost, schedule, and technical risks what is the Navy doing to mitigate or manage cost, schedule, and technical risks
while it seeks to deploy these UVs on an accelerated acquisition timeline? Are while it seeks to deploy these UVs on an accelerated acquisition timeline? Are
these risk-mitigation and risk-management efforts appropriate and sufficient? these risk-mitigation and risk-management efforts appropriate and sufficient?
 At what point would technical problems, schedule delays, or cost growth in these  At what point would technical problems, schedule delays, or cost growth in these
programs require a reassessment of the Navy’s plan to shift from the current fleet programs require a reassessment of the Navy’s plan to shift from the current fleet
architecture to a more distributed architecture? architecture to a more distributed architecture?
A June 1, 2020, press report states A June 1, 2020, press report states
The U.S. military is banking on unmanned surface and subsurface vessels to boost its The U.S. military is banking on unmanned surface and subsurface vessels to boost its
capacity in the face of a tsunami of Chinese naval spending. But before it can field the capacity in the face of a tsunami of Chinese naval spending. But before it can field the
systems, it must answer some basic questions. systems, it must answer some basic questions.
49 Aidan Quigley, “ Navy Finishing Unmanned Surface Vehicles Concept of Operations ‘in Next Few Months,’” Inside Defense, October 30, 2020. 50 For more on this shift, see CRS Report R43838, Renewed Great Power Competition: Implications for Defense—Issues for Congress, by Ronald O'Rourke. Congressional Research Service 23 Navy Large Unmanned Surface and Undersea Vehicles How will these systems deploy? How will they be supported overseas? Who will support How will these systems deploy? How will they be supported overseas? Who will support
them? Can the systems be made sufficiently reliable to operate alone and unafraid on the them? Can the systems be made sufficiently reliable to operate alone and unafraid on the
open ocean for weeks at a time? Will the systems be able to communicate in denied open ocean for weeks at a time? Will the systems be able to communicate in denied
environments? environments?
As the Navy goes all-in on its unmanned future, with billions of dollars of investments As the Navy goes all-in on its unmanned future, with billions of dollars of investments
planed, how the service answers those questions will be crucial to the success planed, how the service answers those questions will be crucial to the success ~~o r~~or failure of failure of
its unmanned pivot.its unmanned pivot.4751
A June 23, 2020, press report states A June 23, 2020, press report states
The Navy’s transition from prototype to program of record for its portfolio of unmanned The Navy’s transition from prototype to program of record for its portfolio of unmanned
surface and undersea systems is being aided by industry, international partners and surface and undersea systems is being aided by industry, international partners and
developmental squadrons, even as the program office seeks to ease concerns that the developmental squadrons, even as the program office seeks to ease concerns that the
transition is happening too fast, the program executive officer for unmanned and smal transition is happening too fast, the program executive officer for unmanned and smal
combatants said today. combatants said today.
Rear Adm. Casey Moton said he’s aware of concerns regarding how unmanned systems – Rear Adm. Casey Moton said he’s aware of concerns regarding how unmanned systems –
particularly the Large Unmanned Surface Vessel – will be developed and used by the fleet, particularly the Large Unmanned Surface Vessel – will be developed and used by the fleet,
but he’s confident in his team’s path forward. but he’s confident in his team’s path forward.
“From my standpoint we are making a lot of great progress in working out the technical “From my standpoint we are making a lot of great progress in working out the technical
maturity, answering those kinds of questions (about how to employ and sustain the vessels) maturity, answering those kinds of questions (about how to employ and sustain the vessels)
and getting the requirements right before we move into production,” he said in a virtual and getting the requirements right before we move into production,” he said in a virtual

~~47 David B. Larter, “ US Navy Embraces Robot Ships, But Some Unresolved Issues Are Holding T hem Back,”~~ ~~Defense~~
~~News, June 1, 2020. See also Bryan Clark, “ Pentagon Needs T o Go Faster—And Slower—On Unmanned Systems,”~~
Forbes, June 11, 2020.
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event today co-hosted by the U.S. Naval Institute and the Center for Strategic and event today co-hosted by the U.S. Naval Institute and the Center for Strategic and
International Studies.International Studies.4852
An August 17, 2020, press report states An August 17, 2020, press report states
As the U.S. Navy pushes forward with developing its large unmanned surface vessel, As the U.S. Navy pushes forward with developing its large unmanned surface vessel,
envisioned as a kind of external missile magazine that will tag along with larger manned envisioned as a kind of external missile magazine that will tag along with larger manned
surface combatants, a growing consensus is forming that the service surface combatants, a growing consensus is forming that the service ~~needs~~need s to get its to get its
requirements and systems right before making a big investment.… requirements and systems right before making a big investment.…
In an exclusive July 16 interview with Defense News, Chief of Naval Operations Adm. In an exclusive July 16 interview with Defense News, Chief of Naval Operations Adm.
Michael Gilday said that while the [congressional] marks [on the program] were Michael Gilday said that while the [congressional] marks [on the program] were
frustrating, he agreed with Congress that requirements must be concrete right up front. frustrating, he agreed with Congress that requirements must be concrete right up front.
“The approach has to be deliberate,” Gilday said. “We have to make sure that the systems “The approach has to be deliberate,” Gilday said. “We have to make sure that the systems
that are on those unmanned systems with respect to the [hull, mechanical and electrical that are on those unmanned systems with respect to the [hull, mechanical and electrical
system], that they are designed to requirement, and perform to requirement. And most system], that they are designed to requirement, and perform to requirement. And most
importantly, are those requirements sound? importantly, are those requirements sound?
“I go back to [a question from years ago relating to the development of the Navy’s Littoral “I go back to [a question from years ago relating to the development of the Navy’s Littoral
Combat Ship (LCS)]: Do I really need a littoral combat ship to go 40 knots? That’s going Combat Ship (LCS)]: Do I really need a littoral combat ship to go 40 knots? That’s going
to drive the entire design of the ship, not just the engineering plant but how it’s built. That to drive the entire design of the ship, not just the engineering plant but how it’s built. That
becomes a critical factor. If you take your eye off the ball with respect to requirements, you becomes a critical factor. If you take your eye off the ball with respect to requirements, you
can find yourself drifting. That has to be deliberate.” can find yourself drifting. That has to be deliberate.”
Gilday has called for the Navy to pursue a comprehensive “Unmanned Campaign Plan” Gilday has called for the Navy to pursue a comprehensive “Unmanned Campaign Plan”
that creates a path forward for developing and fielding unmanned systems in the air, on the that creates a path forward for developing and fielding unmanned systems in the air, on the
sea and under the water. Right now, the effort exists in a number of different programs that sea and under the water. Right now, the effort exists in a number of different programs that
may not all be pulling in the same direction, he said. may not all be pulling in the same direction, he said.
51 David B. Larter, “ US Navy Embraces Robot Ships, But Some Unresolved Issues Are Holding T hem Back,” Defense News, June 1, 2020. See also Bryan Clark, “ Pentagon Needs T o Go Faster—And Slower—On Unmanned Systems,” Forbes, June 11, 2020. 52 Megan Eckstein, “ Program Office Maturing USVs, UUVs With Help From Industry, International Partners,” USNI News, June 23, 2020. Congressional Research Service 24 Navy Large Unmanned Surface and Undersea Vehicles “What I’ve found is that we didn’t necessarily have the rigor that’s required across a “What I’ve found is that we didn’t necessarily have the rigor that’s required across a
number of programs that would bring those together in a way that’snumber of programs that would bring those together in a way that’s driven toward driven toward
objectives with milestones,” Gilday told Defense News. “If you took a look at [all the objectives with milestones,” Gilday told Defense News. “If you took a look at [all the
programs], where are there similarities and where are there differences? Where am I programs], where are there similarities and where are there differences? Where am I
making progress in meeting conditions and meeting milestones that we can leverage in making progress in meeting conditions and meeting milestones that we can leverage in
other experiments? other experiments?
“At what point do I reach a decision point where I drop a program and double down on a “At what point do I reach a decision point where I drop a program and double down on a
program that I can accelerate?”program that I can accelerate?”4953
A September 8, 2020, press report states: A September 8, 2020, press report states:
Several Navy program officials and resource sponsors today outlined how they’ll spend Several Navy program officials and resource sponsors today outlined how they’ll spend
the next couple years giving Congress enough confidence in unmanned surface and the next couple years giving Congress enough confidence in unmanned surface and
underwater vehicles to allow the service to move from prototyping into programs of record. underwater vehicles to allow the service to move from prototyping into programs of record.
Across the entire family of USVs and UUVs, the Navy has Across the entire family of USVs and UUVs, the Navy has ~~prototypes~~pro totypes in the water today in the water today
for experimentation and in tandem is making plans to design and buy the next better vehicle for experimentation and in tandem is making plans to design and buy the next better vehicle
or more advanced payloads, with the idea that the service will iterate its way to achieve or more advanced payloads, with the idea that the service will iterate its way to achieve
congressional confidence and authorization to move forward on buying these unmanned congressional confidence and authorization to move forward on buying these unmanned
systems in bulk. systems in bulk.
Rear Adm. Casey Moton, the program executive officer for unmanned and small Rear Adm. Casey Moton, the program executive officer for unmanned and small
combatants, spoke today at the Association for Unmanned Vehicle Systems International combatants, spoke today at the Association for Unmanned Vehicle Systems International

~~48 Megan Eckstein, “ Program Office Maturing USVs, UUVs With Help From Industry, International Partners,”~~ ~~USNI~~
~~News, June 23, 2020.~~
~~49 David B. Larter, “ In Developing Robot Warships, US Navy Wants to Avoid Another Littoral Combat Ship,”~~ ~~Defense~~
~~News, August 17, 2020. See also Loren T hompson, “ U.S. Navy Mounts Campaign T o Convince Congress T hat~~
~~Unmanned Vessels Are Critical T o Winning Future Wars,” Forbes, August 17, 2020.~~
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(AUVSI) annual defense conference and provided an update on the status of his portfolio (AUVSI) annual defense conference and provided an update on the status of his portfolio
of UUVs and USVs, some of which have run into trouble with lawmakers not convinced of UUVs and USVs, some of which have run into trouble with lawmakers not convinced
of their technical maturity and their tactical utility. of their technical maturity and their tactical utility.
Anticipating audience questions, he said in his speech, “what about Congress? What about Anticipating audience questions, he said in his speech, “what about Congress? What about
the marks and the report language and the questions? So I’m going to put some of that into the marks and the report language and the questions? So I’m going to put some of that into
context from my perspective. I believe the discussion with Congress has not been about if context from my perspective. I believe the discussion with Congress has not been about if
unmanned vessels will be part of the Navy. ‘If’ has not been the focus. I don’t even believe unmanned vessels will be part of the Navy. ‘If’ has not been the focus. I don’t even believe
right now that ‘if’ is a major question. The focus has been on ‘how,’ with a healthy dose right now that ‘if’ is a major question. The focus has been on ‘how,’ with a healthy dose
of ‘what,’ in terms of requirements and mission type. And of course, ‘how many’ is a of ‘what,’ in terms of requirements and mission type. And of course, ‘how many’ is a
question. How many, I will not focus on today. How many is dependent on Navy and question. How many, I will not focus on today. How many is dependent on Navy and
[Office of the Secretary of Defense] force structure work. But for PEO USC, how many is [Office of the Secretary of Defense] force structure work. But for PEO USC, how many is
ultimately important, but our focus now in this prototyping and experimentation and ultimately important, but our focus now in this prototyping and experimentation and
development phase is on the how, and working with our requirements sponsors and the development phase is on the how, and working with our requirements sponsors and the
fleet on the what.” fleet on the what.”
The most ambitious part of the Navy’s current plan calls for the start of a Large USV The most ambitious part of the Navy’s current plan calls for the start of a Large USV
program of record in Fiscal Year 2023, despite the LUSV being the piece of program of record in Fiscal Year 2023, despite the LUSV being the piece of ~~th e~~the family of family of
USVs that Congress takes issue with the most. The Navy intends for these ships to be USVs that Congress takes issue with the most. The Navy intends for these ships to be
armed with vertical launch system cells to fire off defensive and offensive missiles—with armed with vertical launch system cells to fire off defensive and offensive missiles—with
sailors onboard manned ships overseeing targeting and firing decisions, since there would sailors onboard manned ships overseeing targeting and firing decisions, since there would
be no personnel on the LUSV.be no personnel on the LUSV.5054
Annual Procurement Rates
Another oversight issue for Congress concerns the Navy’s planned annual procurement rates for Another oversight issue for Congress concerns the Navy’s planned annual procurement rates for
the LUSV and XLUUV programs during the period FY2021-FY2025. Potential oversight the LUSV and XLUUV programs during the period FY2021-FY2025. Potential oversight
53 David B. Larter, “ In Developing Robot Warships, US Navy Wants to Avoid Another Littoral Combat Ship,” Defense News, August 17, 2020. See also Loren T hompson, “ U.S. Navy Mounts Campaign T o Convince Congress T hat Unmanned Vessels Are Critical T o Winning Future Wars,” Forbes, August 17, 2020. 54 Megan Eckstein, “ Navy Pushing to Maintain 2023 USV Program of Record T imeline,” USNI News, September 8, 2020. Congressional Research Service 25 Navy Large Unmanned Surface and Undersea Vehicles questions for Congress include, What factors did the Navy consider in arriving at them, and in questions for Congress include, What factors did the Navy consider in arriving at them, and in
light of these factors, are these rates too high, too low, or about right? light of these factors, are these rates too high, too low, or about right?
Industrial Base Implications
Another oversight issue for Congress concerns the potential industrial base implications of these Another oversight issue for Congress concerns the potential industrial base implications of these
large UV programs as part of a shift to a more distributed fleet architecture, particularly since large UV programs as part of a shift to a more distributed fleet architecture, particularly since
UVs like these can be built and maintained by facilities other than the shipyards that currently UVs like these can be built and maintained by facilities other than the shipyards that currently
build the Navy’s major combatant ships. Potential oversight questions for Congress include the build the Navy’s major combatant ships. Potential oversight questions for Congress include the
following: following:
 What implications would the more distributed architecture have for required  What implications would the more distributed architecture have for required
numbers, annual procurement rates, and maintenance workloads for large surface numbers, annual procurement rates, and maintenance workloads for large surface
combatants (i.e., cruisers and destroyers) and smal surface combatants (i.e., combatants (i.e., cruisers and destroyers) and smal surface combatants (i.e.,
frigates and Littoral Combat Ships)? frigates and Littoral Combat Ships)?
 What portion of these UVs might be built or maintained by facilities other than  What portion of these UVs might be built or maintained by facilities other than
shipyards that currently build the Navy’s major combatant ships? shipyards that currently build the Navy’s major combatant ships?5155
 To what degree, if any, might the more distributed architecture and these large  To what degree, if any, might the more distributed architecture and these large
UV programs change the current distribution of Navy shipbuilding and UV programs change the current distribution of Navy shipbuilding and
maintenance work, and what implications might that have for workloads and maintenance work, and what implications might that have for workloads and
employment levelsemployment levels at various production and maintenance facilities? ~~at various production and maintenance facilities?~~

~~50 Megan Eckstein, “ Navy Pushing to Maintain 2023 USV Program of Record T imeline,” USNI News, September 8,~~
~~2020.~~
~~51 For an opinion piece addressing t his issue, see Collin Fox, “ Distributed Manufacturing for Distributed Lethality,”~~
~~Center for International Maritime Security (CIMSEC), February 26, 2021.~~
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Potential Implications for Miscalculation or Escalation at Sea
Another oversight issue for Congress concerns the potential implications of large UVs, Another oversight issue for Congress concerns the potential implications of large UVs,
particularly large USVs, for the chance of miscalculation or escalation in when U.S. Navy forces particularly large USVs, for the chance of miscalculation or escalation in when U.S. Navy forces
are operating in waters near potential adversaries. Some observers have expressed concern about are operating in waters near potential adversaries. Some observers have expressed concern about
this issue. A June 28, 2019, opinion column, for example, states this issue. A June 28, 2019, opinion column, for example, states
The immediate danger from militarized artificial intelligence isn't hordes of killer robots, The immediate danger from militarized artificial intelligence isn't hordes of killer robots,
nor the exponential pace of a new arms race. nor the exponential pace of a new arms race.
As recent events in the Strait of Hormuz indicate, the bigger risk is the fact that autonomous As recent events in the Strait of Hormuz indicate, the bigger risk is the fact that autonomous
military craft make for temping targets—and increase the potential for miscalculation on military craft make for temping targets—and increase the potential for miscalculation on
and above the high seas. and above the high seas.
While less provocative than planes, vehicles, or ships with human crew or troops aboard, While less provocative than planes, vehicles, or ships with human crew or troops aboard,
unmanned systems are also perceived as relatively expendable. Danger arises when they unmanned systems are also perceived as relatively expendable. Danger arises when they
lower the threshold for military action. lower the threshold for military action.
It is a development with serious implications in volatile regions far beyond the Gulf—not It is a development with serious implications in volatile regions far beyond the Gulf—not
least the South China Sea, where the U.S. has recently confronted both China and Russia…. least the South China Sea, where the U.S. has recently confronted both China and Russia….
As autonomous systems proliferate in the air and on the ocean, [opposing] military As autonomous systems proliferate in the air and on the ocean, [opposing] military
commanders may feel emboldened to strike these platforms, expecting lower repercussions commanders may feel emboldened to strike these platforms, expecting lower repercussions
by avoiding the loss of human life. by avoiding the loss of human life.
Consider when Chinese naval personnel in a small boat seized an unmanned American Consider when Chinese naval personnel in a small boat seized an unmanned American
underwater survey underwater survey ~~glider52~~glider56 in the sea approximately 100 kilometers off the Philippines in 55 For an opinion piece addressing this issue, see Collin Fox, “ Distributed Manufacturing for Distributed Lethality,” Center for International Maritime Security (CIMSEC), February 26, 2021. 56 A glider is a type of UUV. T he glider in question was a few feet in length and resembled a small torpedo with a pair of wings. For a press report about the seizure of th e glider, see, for example, Sam LaGrone, “ Updated: Chinese Seize U.S. Navy Unmanned Vehicle,” USNI News, December 16, 2016. Congressional Research Service 26 Navy Large Unmanned Surface and Undersea Vehicles ~~in the sea approximately 100 kilometers off the Philippines in~~
December 2016. The winged, torpedo-shaped unit was within sight of its handlers aboard December 2016. The winged, torpedo-shaped unit was within sight of its handlers aboard
the U.S. Navy oceanographic vessel Bowditch, who gaped in astonishment as it was the U.S. Navy oceanographic vessel Bowditch, who gaped in astonishment as it was
summarily hoisted aboard a Chinese warship less than a kilometer distant. The U.S. summarily hoisted aboard a Chinese warship less than a kilometer distant. The U.S.
responded with a diplomatic demarche and congressional opprobrium, and the glider was responded with a diplomatic demarche and congressional opprobrium, and the glider was
returned within the week…. returned within the week….
In coming years, the Chinese military will find increasingly plentiful opportunities to In coming years, the Chinese military will find increasingly plentiful opportunities to
intercept American autonomous systems. The 40-meter prototype trimaran Sea Hunter, an intercept American autonomous systems. The 40-meter prototype trimaran Sea Hunter, an
experimental submarine-tracking vessel, recently transited between Hawaii and San Diego experimental submarine-tracking vessel, recently transited between Hawaii and San Diego
without human intervention. It has yet to be used operationally, but it is only a matter of without human intervention. It has yet to be used operationally, but it is only a matter of
time before such vessels are deployed…. time before such vessels are deployed….
China’s navy may find intercepting such unmanned and unchaperoned surface vessels or China’s navy may find intercepting such unmanned and unchaperoned surface vessels or
mini-submarines too tantalizing to pass up, especially if Washington’s meek retort to the mini-submarines too tantalizing to pass up, especially if Washington’s meek retort to the
2016 glider incident is seen as an indication of American permissiveness or timidity. 2016 glider incident is seen as an indication of American permissiveness or timidity.
With a captive vessel, persevering Chinese technicians could attempt to bypass anti-tamper With a captive vessel, persevering Chinese technicians could attempt to bypass anti-tamper
mechanisms, and if successful, proceed to siphon off communication codes or proprietary mechanisms, and if successful, proceed to siphon off communication codes or proprietary
artificial intelligence software, download navigational data or pre-programmed rules of artificial intelligence software, download navigational data or pre-programmed rules of
engagement, or probe for cyber vulnerabilities that could be exploited against similar engagement, or probe for cyber vulnerabilities that could be exploited against similar
vehicles…. vehicles….
Nearly 100,000 ships transit the strategically vital Singapore Strait annually, where more Nearly 100,000 ships transit the strategically vital Singapore Strait annually, where more
than 75 collisions or groundings occurred last year alone. In such congested international than 75 collisions or groundings occurred last year alone. In such congested international
sea lanes, declaring a foreign navy’s autonomous vessel wayward or unresponsive would sea lanes, declaring a foreign navy’s autonomous vessel wayward or unresponsive would
easily serve as convenient rationale for towing it into territorial waters for easily serve as convenient rationale for towing it into territorial waters for ~~impoundment~~impo undment, or for boarding it straightaway…. ,
~~or for boarding it straightaway….~~

~~52 A glider is a type of UUV. T he glider in question was a few feet in length and resembled a small torpedo with a pair~~
~~of wings. For a press report about the seizure of the glider, see, for example, Sam LaGrone, “ Updated: Chinese Seize~~
~~U.S. Navy Unmanned Vehicle,” USNI News, December 16, 2016.~~
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A memorandum of understanding signed five years ago by the U.S. Department of Defense A memorandum of understanding signed five years ago by the U.S. Department of Defense
and the Chinese defense ministry, as well as the collaborative code of naval conduct created and the Chinese defense ministry, as well as the collaborative code of naval conduct created
at the 2014 Western Pacific Naval Symposium, should be updated with an expanded right-at the 2014 Western Pacific Naval Symposium, should be updated with an expanded right-
of-way hierarchy and non-interference standards to clarify how manned ships and aircraft of-way hierarchy and non-interference standards to clarify how manned ships and aircraft
should interact with their autonomous counterparts. Without such guidance, the risk of should interact with their autonomous counterparts. Without such guidance, the risk of
miscalculation increases. miscalculation increases.
An incident without any immediate human presence or losses could nonetheless trigger An incident without any immediate human presence or losses could nonetheless trigger
unexpected escalation and spark the next conflict.unexpected escalation and spark the next conflict.5357
Personnel Implications
Another oversight issue for Congress concerns the potential personnel implications of Another oversight issue for Congress concerns the potential personnel implications of
incorporating a significant number of large UVs into the Navy’s fleet architecture. Potential incorporating a significant number of large UVs into the Navy’s fleet architecture. Potential
questions for Congress include the following: questions for Congress include the following:
 What implications might these large UVs have for the required skil s, training,  What implications might these large UVs have for the required skil s, training,
and career paths of Navy personnel? and career paths of Navy personnel?
 Within the Navy, what wil be the relationship between personnel who crew  Within the Navy, what wil be the relationship between personnel who crew
manned ships and those who operate these large UVs? manned ships and those who operate these large UVs?
57 Evan Karlik, “US-China T ensions—Unmanned Military Craft Raise Risk of War,” Nikkei Asian Review, June 28, 2019. See also David B. Larter, “ T he US Navy Says It’s Doing Its Best to Avoid a ‘T erminator’ Scenario in Quest for Autonomous Weapons,” Defense News, September 12, 2019; David Axe, “ Autonomous Navies Could Make War More Likely,” National Interest, August 17, 2020. Congressional Research Service 27 link to page 32 Navy Large Unmanned Surface and Undersea Vehicles Annual Funding
Another oversight issue for Congress concerns the funding amounts for these programs that the Another oversight issue for Congress concerns the funding amounts for these programs that the
Navy has requested for these programs for FY2021. Potential oversight questions for Congress Navy has requested for these programs for FY2021. Potential oversight questions for Congress
include the following: include the following:
 Has the Navy accurately priced the work on these programs that it is proposing to  Has the Navy accurately priced the work on these programs that it is proposing to
do in FY2021? do in FY2021?
 To what degree, if any, has funding been requested ahead of need? To what  To what degree, if any, has funding been requested ahead of need? To what
degree, if any, is the Navy insufficiently funding elements of the work to be done degree, if any, is the Navy insufficiently funding elements of the work to be done
in FY2021? in FY2021?
 How might the timelines for these programs be affected by a decision to reduce  How might the timelines for these programs be affected by a decision to reduce
(or add to) the Navy’s requested amounts for these programs? (or add to) the Navy’s requested amounts for these programs?
Legislative Activity for FY2022
The Navy’s proposed FY2022 budget wil be submitted to Congress later this year. The Navy’s proposed FY2022 budget wil be submitted to Congress later this year.
Legislative Activity for FY2021
Summary of Congressional Action on FY2021 Funding Request
Table 2 summarizes congressional action on the Navy’s FY2021 funding request for the LUSV, summarizes congressional action on the Navy’s FY2021 funding request for the LUSV,
MUSV, and XLUUV programs and their enabling technologies. MUSV, and XLUUV programs and their enabling technologies.

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

Authorization
Appropriation

Request
HASC
SASC
Conf.
HAC
SAC
Conf.
Navy research and development account
MUSVs and LUSVs (Line 27, Projects 3066, 3067, 3428) MUSVs and LUSVs (Line 27, Projects 3066, 3067, 3428)
464.0 464.0
270.4 270.4
0 0
259.2 259.2
259.2 259.2
91.2 91.2
93.7 93.7
MUSVs (Line 27A) MUSVs (Line 27A)
0 0
0 0
0 0
0 0
0 0
55.4 55.4
55.4 55.4
XLUUV (Line 89, Project 3394) XLUUV (Line 89, Project 3394)
115.9 115.9
105.9 105.9
95.9 95.9
92.6 92.6
80.2 80.2
115.9 115.9
89.8 89.8
TOTAL
579.9
376.3
95.9
351.8
339.4
262.5
238.9
Sources: Table prepared by CRS based on FY2021 Navy budget submission, committee and conference reports, Table prepared by CRS based on FY2021 Navy budget submission, committee and conference reports,
and explanatory statements on the FY2021 National Defense Authorization Act and the FY2021 DOD and explanatory statements on the FY2021 National Defense Authorization Act and the FY2021 DOD
Appropriations Act. Appropriations Act.
Notes: LUSV is Project 3066 within PE (Program Element) 0603178N (line 27 in the Navy’s FY2021 research is Project 3066 within PE (Program Element) 0603178N (line 27 in the Navy’s FY2021 research
and development account). and development account). MUSV is Project 3428 within PE 0603178N (line 27). is Project 3428 within PE 0603178N (line 27). LUSV and and MUSV enabling enabling
technologies is Project 3067 within PE 0603178N (line 27). technologies is Project 3067 within PE 0603178N (line 27). XLUUV is Project 3394 within PE 0604536N (line is Project 3394 within PE 0604536N (line
89). 89). HASC is House Armed Services Committee; is House Armed Services Committee; SASC is Senate Armed Services Committee; is Senate Armed Services Committee; HAC is House is House
Appropriations Committee; Appropriations Committee; SAC is Senate Appropriations Committee; is Senate Appropriations Committee; Conf. is conference agreement. is conference agreement.
Congressional Research Service 28 link to page 32 Navy Large Unmanned Surface and Undersea Vehicles FY2021 National Defense Authorization Act (H.R. 6395/S. 4049/P.L.
116-283)
House
The House Armed Services Committee, in its report (H.Rept. 116-442 of July 9, 2020) on H.R. The House Armed Services Committee, in its report (H.Rept. 116-442 of July 9, 2020) on H.R.
6395, recommended the funding levels shown in the HASC column 6395, recommended the funding levels shown in the HASC column ofof Table 2. A recommended A recommended
reduction of $238.6 mil ion (the entire requested amount) for LUSV is for “Two additional reduction of $238.6 mil ion (the entire requested amount) for LUSV is for “Two additional
Overlord vessels [being] excess to need.” A recommended increase of $45.0 mil ion is for Overlord vessels [being] excess to need.” A recommended increase of $45.0 mil ion is for
converting two Navy Expeditionary Fast Transport ships (EPF) into LUSV prototypes. (Page converting two Navy Expeditionary Fast Transport ships (EPF) into LUSV prototypes. (Page
391) A recommended reduction of $10 mil ion for XLUUV is for “XLUUV late test and 391) A recommended reduction of $10 mil ion for XLUUV is for “XLUUV late test and
evaluation award.” (Page 393) evaluation award.” (Page 393)
Regarding the recommended funding for converting two EPFs into LUSV prototypes, H.Rept. Regarding the recommended funding for converting two EPFs into LUSV prototypes, H.Rept.
116-442 states 116-442 states
Expeditionary Fast Transport conversion to an unmanned surface vessel
The committee recognizes that unmanned surface vessels will play an essential role in The committee recognizes that unmanned surface vessels will play an essential role in
future fleets of the Navy and supports the development of thisfuture fleets of the Navy and supports the development of this capability in a manner that capability in a manner that
responsibly fields this new capability. The committee continues to believe that the Navy’s responsibly fields this new capability. The committee continues to believe that the Navy’s
current acquisition strategy incorporates an excessive amount of concurrency and is overly current acquisition strategy incorporates an excessive amount of concurrency and is overly
focused on the hull. The desire to move focused on the hull. The desire to move ~~immediately~~immed iately from development into serial from development into serial
production will only yield similar misfortunes as past shipbuilding programs with similar production will only yield similar misfortunes as past shipbuilding programs with similar
strategies. The committee believes the Navy should be primarily focused on the autonomy strategies. The committee believes the Navy should be primarily focused on the autonomy
piece of this capability and ensuring that technologies that will need to be developed to piece of this capability and ensuring that technologies that will need to be developed to
support autonomous operations are mature before being incorporated on a purpose built support autonomous operations are mature before being incorporated on a purpose built
vessel. A strategy that includes prototyping and test-of-ship systems such as propulsion, vessel. A strategy that includes prototyping and test-of-ship systems such as propulsion,
Command, Control, Communications, Computers and Intelligence, and other major Hull, Command, Control, Communications, Computers and Intelligence, and other major Hull,
Mechanical and Engineering systems prior to hull form decisions is a more prudent strategy Mechanical and Engineering systems prior to hull form decisions is a more prudent strategy
that may actually field this capability sooner. The committee is also concerned with what that may actually field this capability sooner. The committee is also concerned with what
level of manning if any will be required for these vessels. In briefings, the Navy has stated level of manning if any will be required for these vessels. In briefings, the Navy has stated
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that initially these vessels will need to be minimally manned rather than fully unmanned in that initially these vessels will need to be minimally manned rather than fully unmanned in
order to maximize Concept of Operations (CONOPS) development. The committee order to maximize Concept of Operations (CONOPS) development. The committee
believes that the Navy should modify existing mature manned ships to support autonomous believes that the Navy should modify existing mature manned ships to support autonomous
operations in order to develop CONOPS rather than procuring new ships that will need to operations in order to develop CONOPS rather than procuring new ships that will need to
support manned operations, but will eventually be fully unmanned. support manned operations, but will eventually be fully unmanned.
Therefore, the committee recommends $45.0 million in PE 0603178N for the conversion Therefore, the committee recommends $45.0 million in PE 0603178N for the conversion
of two Expeditionary Fast Transport (EPF) ships to support autonomous operations and of two Expeditionary Fast Transport (EPF) ships to support autonomous operations and
accelerate CONOPS development. (Pages 43-44) accelerate CONOPS development. (Pages 43-44)
Section 230 of H.R. 6395 as reported by the committee states of H.R. 6395 as reported by the committee states
SEC. 230. LIMITATIONS RELATING TO LARGE UNMANNED SURFACE VESSELS SEC. 230. LIMITATIONS RELATING TO LARGE UNMANNED SURFACE VESSELS
AND ASSOCIATED OFFEN SIVE WEAPON SYSTEMS. AND ASSOCIATED OFFEN SIVE WEAPON SYSTEMS.
(a) LIMITATION ON AVAILABILITY OF FUNDS FOR LUSV.— (a) LIMITATION ON AVAILABILITY OF FUNDS FOR LUSV.—
(1) LIMITATION.—None of the funds authorized to be appropriated by this Act or (1) LIMITATION.—None of the funds authorized to be appropriated by this Act or
otherwise made available for fiscal year 2021 for the Department of the Navy for the otherwise made available for fiscal year 2021 for the Department of the Navy for the
procurement of a large unmanned surface vessel may be obligated or expended until a procurement of a large unmanned surface vessel may be obligated or expended until a
period of 60 days has elapsed following the date on which the Secretary of the Navy period of 60 days has elapsed following the date on which the Secretary of the Navy
submits to the congressional defense committees the certification described in paragraph submits to the congressional defense committees the certification described in paragraph
(2). (2).
Congressional Research Service 29 link to page 32 Navy Large Unmanned Surface and Undersea Vehicles (2) CERTIFICATION DESCRIBED.—The certification described in this paragraph is a (2) CERTIFICATION DESCRIBED.—The certification described in this paragraph is a
written statement of the Secretary of the Navy certifying, with respect to any large written statement of the Secretary of the Navy certifying, with respect to any large
unmanned surface vessel to be procured by the Secretary, the following: unmanned surface vessel to be procured by the Secretary, the following:
(A) A hull system, a mechanical system, and an electrical system have been developed for (A) A hull system, a mechanical system, and an electrical system have been developed for
the vessel and each system— the vessel and each system—
(i) has attained a technology readiness level of seven or greater; and (i) has attained a technology readiness level of seven or greater; and
(ii) can be operated autonomously for a minimum of 30 days. (ii) can be operated autonomously for a minimum of 30 days.
(B) A command control system has been developed for the vessel and the system— (B) A command control system has been developed for the vessel and the system—
(i) can be operated autonomously; (i) can be operated autonomously;
(ii) includes autonomous detection; and (ii) includes autonomous detection; and
(iii) has attained a technology readiness level of seven or greater. (iii) has attained a technology readiness level of seven or greater.
(C) A detailed plan has been developed for measuring and demonstrating the reliability of (C) A detailed plan has been developed for measuring and demonstrating the reliability of
the vessel. the vessel.
(D) All payloads expected to be carried on the vessel have attained a technology readiness (D) All payloads expected to be carried on the vessel have attained a technology readiness
level of seven or greater. level of seven or greater.
(b) LIMITATION ON LUSV WEAPON INTEGRATION.— (b) LIMITATION ON LUSV WEAPON INTEGRATION.—
The Secretary of the Navy may not integrate any offensive weapon system into a large The Secretary of the Navy may not integrate any offensive weapon system into a large
unmanned surface vessel until the date on which the Secretary of the Defense certifies to unmanned surface vessel until the date on which the Secretary of the Defense certifies to
the congressional defense committees that any large unmanned surface vessel that employs the congressional defense committees that any large unmanned surface vessel that employs
offensive weapons will comply with the law of armed conflict. Such certification shal offensive weapons will comply with the law of armed conflict. Such certification shal
include a detailed explanation of how such compliance will be achieved. include a detailed explanation of how such compliance will be achieved.
Senate
The Senate Armed Services Committee, in its report (S.Rept. 116-236 of June 24, 2020) on S. The Senate Armed Services Committee, in its report (S.Rept. 116-236 of June 24, 2020) on S.
4049, recommended the funding levels shown in the SASC column 4049, recommended the funding levels shown in the SASC column ofof Table 2. The The
recommended reductions to zero funding line 27 is for “Excess procurement ahead of satisfactory recommended reductions to zero funding line 27 is for “Excess procurement ahead of satisfactory
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testing.” (Page 504) The recommended reduction of $20 mil ion for line 89 is for “Orca UUV testing.” (Page 504) The recommended reduction of $20 mil ion for line 89 is for “Orca UUV
[XLUUV] testing delay and uncertified test strategy” ($10.0 mil ion) and “Snakehead UUV [XLUUV] testing delay and uncertified test strategy” ($10.0 mil ion) and “Snakehead UUV
uncertified test strategy” ($10 mil ion). (Page 507) uncertified test strategy” ($10 mil ion). (Page 507)
Section 122 of S. 4049 as reported by the committee states of S. 4049 as reported by the committee states
SEC. 122. LIMITATION ON NAVY MEDIUM AND LARGE UNMANNED SURFACE SEC. 122. LIMITATION ON NAVY MEDIUM AND LARGE UNMANNED SURFACE
VESSELS. VESSELS.
(a) MILESTONE B APPROVAL REQUIREMENTS.—Milestone B approval may not be (a) MILESTONE B APPROVAL REQUIREMENTS.—Milestone B approval may not be
granted for a covered program unless such program accomplishes prior to and incorporates granted for a covered program unless such program accomplishes prior to and incorporates
into such approval— into such approval—
(1) qualification by the Senior Technical Authority of— (1) qualification by the Senior Technical Authority of—
(A) at least two different main propulsion engines and ancillary equipment, including the (A) at least two different main propulsion engines and ancillary equipment, including the
fuel and lube oil systems; and fuel and lube oil systems; and
(B) at least two different electrical genera tors and ancillary equipment; (B) at least two different electrical genera tors and ancillary equipment;
(2) final results of test programs of engineering development models or prototypes for (2) final results of test programs of engineering development models or prototypes for
critical systems specified by the Senior Technical Authority in their final form, fit, and critical systems specified by the Senior Technical Authority in their final form, fit, and
function and in a realistic environment; and function and in a realistic environment; and
Congressional Research Service 30 Navy Large Unmanned Surface and Undersea Vehicles (3) a determination by the milestone decision authority of the minimum number of vessels, (3) a determination by the milestone decision authority of the minimum number of vessels,
discrete test events, performance parameters to be tested, and schedule discrete test events, performance parameters to be tested, and schedule ~~required~~require d to to
complete initial operational test and evaluation and demonstrate operational suitability and complete initial operational test and evaluation and demonstrate operational suitability and
operational effectiveness. operational effectiveness.
(b) QUALIFICATION REQUIREMENTS.—The qualification required in subsection (b) QUALIFICATION REQUIREMENTS.—The qualification required in subsection
(a)(1) shall include a land-based operational demonstration of such equipment in the (a)(1) shall include a land-based operational demonstration of such equipment in the
vessel-representative form, fit, and function for not less than 1,080 continuous hours vessel-representative form, fit, and function for not less than 1,080 continuous hours
without preventative maintenance, corrective maintenance, emergent repair, or any other without preventative maintenance, corrective maintenance, emergent repair, or any other
form of repair or maintenance. form of repair or maintenance.
(c) REQUIREMENT TO USE QUALIFIED ENGINES AND GENERATORS.—The (c) REQUIREMENT TO USE QUALIFIED ENGINES AND GENERATORS.—The
Secretary of the Navy shall require that covered programs use only main propulsion Secretary of the Navy shall require that covered programs use only main propulsion
engines and electrical generators that are qualified under sub section (a)(1). engines and electrical generators that are qualified under sub section (a)(1).
(d) LIMITATION.—The Secretary of the Navy may not release a detail design or (d) LIMITATION.—The Secretary of the Navy may not release a detail design or
construction request for proposals or obligate funds from a procurement account for a construction request for proposals or obligate funds from a procurement account for a
covered program until such program receives Milestone B approval and the milestone covered program until such program receives Milestone B approval and the milestone
decision authority notifies the congressional defense committees, in writing, of the actions decision authority notifies the congressional defense committees, in writing, of the actions
taken to comply with the requirements under this section. taken to comply with the requirements under this section.
(e) DEFINITIONS.—In this section: (e) DEFINITIONS.—In this section:
(1) The term ‘‘covered program’’ means a program for— (1) The term ‘‘covered program’’ means a program for—
(A) medium unmanned surface vessels; or (A) medium unmanned surface vessels; or
(B) large unmanned surface vessels. (B) large unmanned surface vessels.
(2) The term ‘‘Milestone B approval’’ has the meaning given the term in section 2366(e)(7) (2) The term ‘‘Milestone B approval’’ has the meaning given the term in section 2366(e)(7)
of title 10, United States Code. of title 10, United States Code.
(3) The term ‘‘milestone decision authority’’ means the official within the Department of (3) The term ‘‘milestone decision authority’’ means the official within the Department of
Defense designated with the overall responsibility and authority for acquisition decisions Defense designated with the overall responsibility and authority for acquisition decisions
for the program, including authority to approve entry of the program into the next phase of for the program, including authority to approve entry of the program into the next phase of
the acquisition process. the acquisition process.
(4) The term ‘‘Senior Technical Authority’’ has the meaning given the term in section (4) The term ‘‘Senior Technical Authority’’ has the meaning given the term in section
8669b of title 10, United States Code. 8669b of title 10, United States Code.
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Regarding Section 122, S.Rept. 116-236 states Regarding Section 122, S.Rept. 116-236 states
Limitation on Navy medium and large unmanned surface vessels (sec. 122)
The committee recommends a provision that would require that certain technical conditions The committee recommends a provision that would require that certain technical conditions
be met prior to Milestone B approval for medium and large unmanned surface vessels. be met prior to Milestone B approval for medium and large unmanned surface vessels.
The committee notes that the budget request provides for the prototyping and testing of The committee notes that the budget request provides for the prototyping and testing of
Medium and Large Unmanned Surface Vessels (MUSVs and LUSVs), including Medium and Large Unmanned Surface Vessels (MUSVs and LUSVs), including
procurement of up to two additional LUSVs in conjunction with a Strategic Capabilities procurement of up to two additional LUSVs in conjunction with a Strategic Capabilities
Office (SCO) initiative. The committee understands that the four LUSVs procured by the Office (SCO) initiative. The committee understands that the four LUSVs procured by the
SCO beginning in fiscal year 2018, at a cost of more than $510 million, are sufficient to SCO beginning in fiscal year 2018, at a cost of more than $510 million, are sufficient to
achieve the objectives of the SCO initiative, which is scheduled to be completed in the achieve the objectives of the SCO initiative, which is scheduled to be completed in the
fourth quarter of fiscal year 2021. fourth quarter of fiscal year 2021.
The committee further notes that the budget request includes plans to award the LUSV The committee further notes that the budget request includes plans to award the LUSV
Detail Design and Construction (DD&C) contract in fiscal year 2022 and transition LUSV Detail Design and Construction (DD&C) contract in fiscal year 2022 and transition LUSV
to a program of record in fiscal year 2023. to a program of record in fiscal year 2023.
The committee remains concerned that the budget request’s concurrent approach to LUSV The committee remains concerned that the budget request’s concurrent approach to LUSV
design, technology development, and integration as well as a limited understanding of the design, technology development, and integration as well as a limited understanding of the
LUSV concept of employment, requirements, and reliability for envisioned missions pose LUSV concept of employment, requirements, and reliability for envisioned missions pose
excessive acquisition risk for additional LUSV procurement in fiscal year 2021. The excessive acquisition risk for additional LUSV procurement in fiscal year 2021. The
Congressional Research Service 31 Navy Large Unmanned Surface and Undersea Vehicles committee is also concerned by the unclear policy implications of LUSVs, including ill-committee is also concerned by the unclear policy implications of LUSVs, including ill-
defined international unmanned surface vessel standards and the legal status of armed or defined international unmanned surface vessel standards and the legal status of armed or
potentially armed LUSVs. potentially armed LUSVs.
Additionally, the committee notes that the Navy’s most recent shipbuilding plan, ‘‘Report Additionally, the committee notes that the Navy’s most recent shipbuilding plan, ‘‘Report
to Congress on the Annual Long-Range Plan for Construction of Naval Vessels for Fiscal to Congress on the Annual Long-Range Plan for Construction of Naval Vessels for Fiscal
Year 2020,’’ acknowledges similar issues: ‘‘Unmanned and optionally-manned systems Year 2020,’’ acknowledges similar issues: ‘‘Unmanned and optionally-manned systems
are not accounted for in the overall battle force[.] ... The physical challenges of extended are not accounted for in the overall battle force[.] ... The physical challenges of extended
operations at sea across the spectrum of competition and conflict, the concepts of operations at sea across the spectrum of competition and conflict, the concepts of
operations for these platforms, and the policy challenges associated with employing deadly operations for these platforms, and the policy challenges associated with employing deadly
force from autonomous vehicles must be well understood prior to replacing accountable force from autonomous vehicles must be well understood prior to replacing accountable
battle force ships.’’ battle force ships.’’
The committee believes that further procurement of MUSVs and LUSVs should occur only The committee believes that further procurement of MUSVs and LUSVs should occur only
after the lessons learned from the current SCO initiative have been incorporated into the after the lessons learned from the current SCO initiative have been incorporated into the
system specification and additional risk reduction actions are taken. system specification and additional risk reduction actions are taken.
A specific area of technical concern for the committee is the Navy requirement for MUSVs A specific area of technical concern for the committee is the Navy requirement for MUSVs
and LUSVs to operate continuously at sea for at least 30 days without preventative and LUSVs to operate continuously at sea for at least 30 days without preventative
maintenance, corrective maintenance, or emergent repairs. The committee is unaware of maintenance, corrective maintenance, or emergent repairs. The committee is unaware of
any unmanned vessel of the size or complexity envisioned for MUSV or LUSV that has any unmanned vessel of the size or complexity envisioned for MUSV or LUSV that has
demonstrated at least 30 days of such operation. demonstrated at least 30 days of such operation.
The committee understands that the SCO prototype vessels that are intended to provide The committee understands that the SCO prototype vessels that are intended to provide
risk reduction for this program have demonstrated between 2 to 3 days of continuous risk reduction for this program have demonstrated between 2 to 3 days of continuous
operation. The committee also understands that the SCO vessels are approximately 25 operation. The committee also understands that the SCO vessels are approximately 25
percent the size by tonnage of a LUSV, which may limit the applicability of lessons learned percent the size by tonnage of a LUSV, which may limit the applicability of lessons learned
and risk reduction from the SCO vessels to the MUSV and LUSV programs. Among other and risk reduction from the SCO vessels to the MUSV and LUSV programs. Among other
critical subsystems, the committee views the main engines and electrical generators as key critical subsystems, the committee views the main engines and electrical generators as key
USV mechanical and electrical subsystems whose reliability is critical to ensuring USV mechanical and electrical subsystems whose reliability is critical to ensuring
successful operations at sea for at least 30 continuous days. successful operations at sea for at least 30 continuous days.
Accordingly, this provision would require at least two main engines and electrical Accordingly, this provision would require at least two main engines and electrical
generators, including ancillary equipment, to be formally qualified by the Navy, including generators, including ancillary equipment, to be formally qualified by the Navy, including
a successful demonstration of at least 30 days of continuous operation prior to the LUSV a successful demonstration of at least 30 days of continuous operation prior to the LUSV
or MUSV Milestone B approval and would require the use of such engines and generators or MUSV Milestone B approval and would require the use of such engines and generators
in future USVs. The provision would also require the Senior Technical Authority and in future USVs. The provision would also require the Senior Technical Authority and
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Milestone Decision Authority to take additional actions related to reducing the technical Milestone Decision Authority to take additional actions related to reducing the technical
risk of these programs prior to a Milestone B approval. risk of these programs prior to a Milestone B approval.
The committee views the qualification of these critical subsystems as an essential The committee views the qualification of these critical subsystems as an essential
prototyping step necessary to provide a solid technical foundation for the MUSV and prototyping step necessary to provide a solid technical foundation for the MUSV and
LUSV programs. Rather than delaying these programs, the committee believes that LUSV programs. Rather than delaying these programs, the committee believes that
qualified engines and generators will enable the delivery of capable, reliable, and qualified engines and generators will enable the delivery of capable, reliable, and
sustainable USVs that meet the needs of fleet commanders faster than the plan contained sustainable USVs that meet the needs of fleet commanders faster than the plan contained
in the budget request. (Pages 9-10) in the budget request. (Pages 9-10)
Section 237 of S. 4049 as reported by the committee states of S. 4049 as reported by the committee states
SEC. 237. LIMITATION ON CONTRACT AWARDS FOR CERTAIN UNMANNED SEC. 237. LIMITATION ON CONTRACT AWARDS FOR CERTAIN UNMANNED
VESSELS. VESSELS.
(a) LIMITATION.—None of the funds authorized to be appropriated for fiscal year 2021 (a) LIMITATION.—None of the funds authorized to be appropriated for fiscal year 2021
by section 201 for research, development, test, and evaluation may be used for the award by section 201 for research, development, test, and evaluation may be used for the award
of a contract for a covered vessel until the date that is 30 days after the date on which the of a contract for a covered vessel until the date that is 30 days after the date on which the
Under Secretary of Defense for Research and Engineering submits to the congressional Under Secretary of Defense for Research and Engineering submits to the congressional
defense committees a report and certification described in subsection (c) for such contract defense committees a report and certification described in subsection (c) for such contract
and covered vessel. and covered vessel.
Congressional Research Service 32 Navy Large Unmanned Surface and Undersea Vehicles (b) COVERED VESSELS.—For purposes of this section, a covered vessel is one of the (b) COVERED VESSELS.—For purposes of this section, a covered vessel is one of the
following: following:
(1) A large unmanned surface vessel (LUSV). (1) A large unmanned surface vessel (LUSV).
(2) A medium unmanned surface vehicle (MUSV). (2) A medium unmanned surface vehicle (MUSV).
(3) A large displacement unmanned undersea vehicle (LDUUV). (3) A large displacement unmanned undersea vehicle (LDUUV).
(4) An extra-large unmanned undersea vehicle (XLUUV). (4) An extra-large unmanned undersea vehicle (XLUUV).
(c) REPORT AND CERTIFICATION DESCRIBED.—A report and certification (c) REPORT AND CERTIFICATION DESCRIBED.—A report and certification
described in this subsection regarding a contract for a covered vessel is — described in this subsection regarding a contract for a covered vessel is —
(1) a report— (1) a report—
(A) submitted to the congressional defense committees not later than 60 days after the date (A) submitted to the congressional defense committees not later than 60 days after the date
of the completion of an independent technical risk assessment for such covered vessel;of the completion of an independent technical risk assessment for such covered vessel; and and
(B) on the findings of the Under Secretary with respect to such assessment; and (B) on the findings of the Under Secretary with respect to such assessment; and
(2) a certification, submitted to the congressional defense committees with the report (2) a certification, submitted to the congressional defense committees with the report
described in paragraph (1), that certifies that— described in paragraph (1), that certifies that—
(A) the Under Secretary has determined, in conjunction with the Senior Technical (A) the Under Secretary has determined, in conjunction with the Senior Technical
Authority designated under section 8669b(a)(1) of title 10, United States Code, for the class Authority designated under section 8669b(a)(1) of title 10, United States Code, for the class
of naval vessels that includes the covered vessel, that the critical mission, hull, mechanical, of naval vessels that includes the covered vessel, that the critical mission, hull, mechanical,
and electrical subsystems of the covered vessel— and electrical subsystems of the covered vessel—
(i) have been demonstrated in vessel representative form, fit, and function; and (i) have been demonstrated in vessel representative form, fit, and function; and
(ii) have achieved performance levels equal to or greater than applicable Department of (ii) have achieved performance levels equal to or greater than applicable Department of
Defense threshold requirements for such class of vessels; and Defense threshold requirements for such class of vessels; and
(B) such contract is necessary to meet Department research, development, test, and (B) such contract is necessary to meet Department research, development, test, and
evaluation objectives for such covered vessel that cannot otherwise be met through further evaluation objectives for such covered vessel that cannot otherwise be met through further
land-based subsystem prototyping or other demonstration approaches. land-based subsystem prototyping or other demonstration approaches.
(d) (d)
CRITICAL CRITICAL
MISSION, MISSION,
HULL, HULL,
MECHANICAL, MECHANICAL,
AND AND
ELECTRICA L ELECTRICA L
SUBSYSTEMS DEFINED.—In this section, the term ‘‘critical mission, hull, mechanical, SUBSYSTEMS DEFINED.—In this section, the term ‘‘critical mission, hull, mechanical,
and electrical subsystems’’, with respect to a covered vessel, includes the following and electrical subsystems’’, with respect to a covered vessel, includes the following
subsystems: subsystems:
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(1) Command, control, communications, computers, intelligence, surveillance, and (1) Command, control, communications, computers, intelligence, surveillance, and
reconnaissance. reconnaissance.
(2) Autonomous vessel navigation, vessel control, contact management, and contact (2) Autonomous vessel navigation, vessel control, contact management, and contact
avoidance. avoidance.
(3) Communications security, including cryptopgraphy, encryption, and decryption. (3) Communications security, including cryptopgraphy, encryption, and decryption.
(4) Main engines, including the lube oil, fuel oil, and other supporting systems. (4) Main engines, including the lube oil, fuel oil, and other supporting systems.
(5) Electrical generation and distribution, including supporting systems. (5) Electrical generation and distribution, including supporting systems.
(6) Military payloads. (6) Military payloads.
(7) Any other subsystem identified as critical by the Senior Technical Authority designated (7) Any other subsystem identified as critical by the Senior Technical Authority designated
under section 8669b(a)(1) of title 10, United States Code, for the class of naval vessels that under section 8669b(a)(1) of title 10, United States Code, for the class of naval vessels that
includes the cov red vessel. includes the cov red vessel.
Regarding Section 237, S.Rept. 116-236 states Regarding Section 237, S.Rept. 116-236 states
Limitation on contract awards for certain unmanned vessels (sec. 237)
Congressional Research Service 33 Navy Large Unmanned Surface and Undersea Vehicles The committee recommends a provision that would require the submission of a The committee recommends a provision that would require the submission of a
certification by the Under Secretary of Defense for Research and Engineering to the certification by the Under Secretary of Defense for Research and Engineering to the
congressional defense committees prior to the Department of Defense’s contracting for congressional defense committees prior to the Department of Defense’s contracting for
certain vessels. certain vessels.
The committee is concerned that an excessive number of unmanned surface The committee is concerned that an excessive number of unmanned surface ~~and~~an d undersea undersea
vessels (USVs and UUVs) are being acquired prematurely using Research, Development, vessels (USVs and UUVs) are being acquired prematurely using Research, Development,
Test, and Evaluation funds and that these vessels may include subsystems that lack Test, and Evaluation funds and that these vessels may include subsystems that lack
sufficient technical reliability and technological maturity to allow the sufficient technical reliability and technological maturity to allow the ~~vessels~~vesse ls to meet to meet
threshold requirements. threshold requirements.
The committee seeks to avoid contracting for USVs and UUVs when the technical The committee seeks to avoid contracting for USVs and UUVs when the technical
reliability and technological maturity of subsystems critical to propulsion and electrical reliability and technological maturity of subsystems critical to propulsion and electrical
distribution or the military purposes of the vessels are either unknown or known to be distribution or the military purposes of the vessels are either unknown or known to be
insufficient. For example, the committee notes the Navy requirement for Medium and insufficient. For example, the committee notes the Navy requirement for Medium and
Large USVs (MUSV and LUSV) to operate continuously at sea for at least 30 days without Large USVs (MUSV and LUSV) to operate continuously at sea for at least 30 days without
preventative maintenance, corrective maintenance, or emergent repairs. The committee is preventative maintenance, corrective maintenance, or emergent repairs. The committee is
unaware of any unmanned vessel of the size or complexity envisioned for MUSV or LUSV unaware of any unmanned vessel of the size or complexity envisioned for MUSV or LUSV
that has demonstrated at least 30 days of such operation. that has demonstrated at least 30 days of such operation.
The committee understands that the Strategic Capabilities Office (SCO) The committee understands that the Strategic Capabilities Office (SCO) ~~prototype~~proto type vessels vessels
intended to provide risk reduction for the Navy’s LUSV program have demonstrated a intended to provide risk reduction for the Navy’s LUSV program have demonstrated a
maximum of 2 to 3 days of continuous operation. The committee also understands that the maximum of 2 to 3 days of continuous operation. The committee also understands that the
SCO vessels are approximately 25 percent the size by tonnage of a Navy LUSV. As a SCO vessels are approximately 25 percent the size by tonnage of a Navy LUSV. As a
result, the committee is concerned that the applicability of lessons learned and risk result, the committee is concerned that the applicability of lessons learned and risk
reduction from the SCO vessels to the Navy MUSV and LUSV programs will be limited. reduction from the SCO vessels to the Navy MUSV and LUSV programs will be limited.
The committee views prior and successful land-based prototyping of individual critical The committee views prior and successful land-based prototyping of individual critical
subsystems as essential to providing a solid technical foundation for USV and UUV subsystems as essential to providing a solid technical foundation for USV and UUV
programs. Rather than delaying these programs, the committee believes that a deliberate programs. Rather than delaying these programs, the committee believes that a deliberate
engineering-based subsystem prototyping approach will enable the delivery of capable, engineering-based subsystem prototyping approach will enable the delivery of capable,
reliable, and sustainable USVs and UUVs that meet the needs of fleet commanders faster reliable, and sustainable USVs and UUVs that meet the needs of fleet commanders faster
than the plan contained in the budget request, which assumes that several unproven or than the plan contained in the budget request, which assumes that several unproven or
nonexistent subsystems will rapidly materialize to meet the Navy’s requirements for these nonexistent subsystems will rapidly materialize to meet the Navy’s requirements for these
vessels. (Pages 76-77) vessels. (Pages 76-77)
S.Rept. 116-236 also states S.Rept. 116-236 also states
Testbed for autonomous ship systems
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The budget request included $122.3 million in Research, Development, Test, and The budget request included $122.3 million in Research, Development, Test, and
Evaluation (RDT&E), Navy, for PE 62123N Force Protection Applied Research. Evaluation (RDT&E), Navy, for PE 62123N Force Protection Applied Research.
The committee notes that a key technology gap for long -duration autonomous ship The committee notes that a key technology gap for long -duration autonomous ship
operation lies in the robustness and resiliency of the hull and machinery plant. The operation lies in the robustness and resiliency of the hull and machinery plant. The
committee also notes that autonomous ships will be expected to operate for months committee also notes that autonomous ships will be expected to operate for months
between human-assisted maintenance and that autonomous machinery must be robust and between human-assisted maintenance and that autonomous machinery must be robust and
resilient in order to avoid failure, repair damage, or redirect platforms as needed. The resilient in order to avoid failure, repair damage, or redirect platforms as needed. The
committee notes the development of digital-twin technologies that allow for predictive or committee notes the development of digital-twin technologies that allow for predictive or
automated maintenance and improved operations and logistics and help fill a critical gap automated maintenance and improved operations and logistics and help fill a critical gap
that has been identified in autonomous systems. that has been identified in autonomous systems.
Therefore, the committee recommends an increase of $3.0 million, in RDT&E, Navy, for Therefore, the committee recommends an increase of $3.0 million, in RDT&E, Navy, for
PE 62123N for the development of a testbed for autonomous ship systems. (Page 95) PE 62123N for the development of a testbed for autonomous ship systems. (Page 95)
S.Rept. 116-236 also states S.Rept. 116-236 also states
Unmanned surface vessel development
The budget request included $21.5 billion in Research, Development, Test, and Evaluation The budget request included $21.5 billion in Research, Development, Test, and Evaluation
(RDT&E), Navy, of which $464.0 million was for PE 63178N Medium and Large (RDT&E), Navy, of which $464.0 million was for PE 63178N Medium and Large
Congressional Research Service 34 Navy Large Unmanned Surface and Undersea Vehicles Unmanned Surface Vehicles and $38.4 million was for PE 63573N Advanced Surface Unmanned Surface Vehicles and $38.4 million was for PE 63573N Advanced Surface
Machinery Systems. Machinery Systems.
The committee notes that the budget request provides for the prototyping and testing of The committee notes that the budget request provides for the prototyping and testing of
Medium and Large Unmanned Surface Vessels (MUSVs and LUSVs), including Medium and Large Unmanned Surface Vessels (MUSVs and LUSVs), including
procurement of up to two additional LUSVs in conjunction with a Strategic Capabilities procurement of up to two additional LUSVs in conjunction with a Strategic Capabilities
Office (SCO) initiative. The committee understands that the 4 LUSVs procured by the SCO Office (SCO) initiative. The committee understands that the 4 LUSVs procured by the SCO
beginning in fiscal year 2018, at a cost of more than $510 million, are sufficient to achieve beginning in fiscal year 2018, at a cost of more than $510 million, are sufficient to achieve
the objectives of the SCO initiative, which is scheduled to be completed in the objectives of the SCO initiative, which is scheduled to be completed in ~~t he~~the fourth fourth
quarter of fiscal year 2021. quarter of fiscal year 2021.
The committee believes that further procurement of MUSVs and LUSVs should occur only The committee believes that further procurement of MUSVs and LUSVs should occur only
after the lessons learned from the current SCO initiative have been incorporated into the after the lessons learned from the current SCO initiative have been incorporated into the
system specification and additional risk reduction actions are taken. system specification and additional risk reduction actions are taken.
A specific area of technical concern for the committee is the Navy requirement for MUSVs A specific area of technical concern for the committee is the Navy requirement for MUSVs
and LUSVs to operate continuously at sea for at least 30 days without preventative and LUSVs to operate continuously at sea for at least 30 days without preventative
maintenance, corrective maintenance, or emergent repairsmaintenance, corrective maintenance, or emergent repairs . The committee is unaware of . The committee is unaware of
any unmanned vessel of the size or complexity envisioned for MUSV or LUSV that has any unmanned vessel of the size or complexity envisioned for MUSV or LUSV that has
demonstrated at least 30 days of such operation. demonstrated at least 30 days of such operation.
The committee understands that the SCO prototype vessels that are intended to provide The committee understands that the SCO prototype vessels that are intended to provide
risk reduction for these programs have demonstrated between 2 to 3 days of continuous risk reduction for these programs have demonstrated between 2 to 3 days of continuous
operation. The committee also understands that the SCO vessels are approximately 25 operation. The committee also understands that the SCO vessels are approximately 25
percent the size by tonnage of a LUSV, which may limit the applicability of lessons learned percent the size by tonnage of a LUSV, which may limit the applicability of lessons learned
and risk reduction from the SCO vessels to the MUSV and LUSV programs. Among other and risk reduction from the SCO vessels to the MUSV and LUSV programs. Among other
critical subsystems, the committee views the main engines and electrical generators in critical subsystems, the committee views the main engines and electrical generators in
particular as key USV mechanical and electrical subsystems whose reliability is critical to particular as key USV mechanical and electrical subsystems whose reliability is critical to
ensuring successful operations at sea for at least 30 continuous days. ensuring successful operations at sea for at least 30 continuous days.
The committee also notes that additional funding is necessary to accelerate completion of The committee also notes that additional funding is necessary to accelerate completion of
the Integrated Power and Energy Systems test facility (ITF) to achieve full test capabilitythe Integrated Power and Energy Systems test facility (ITF) to achieve full test capability
in fiscal year 2023, consistent with section 131 of the National Defense Authorization Act in fiscal year 2023, consistent with section 131 of the National Defense Authorization Act
for Fiscal Year 2020 (Public Law 116–92), as well as the qualification of silicon carbide for Fiscal Year 2020 (Public Law 116–92), as well as the qualification of silicon carbide
power modules. power modules.
Accordingly, the committee recommends a decrease of $464.0 million, for a total of $0, in Accordingly, the committee recommends a decrease of $464.0 million, for a total of $0, in
RDT&E, Navy, for PE 63178N, and an increase of $200.0 million, for a total of $238.4 RDT&E, Navy, for PE 63178N, and an increase of $200.0 million, for a total of $238.4
million in RDT&E, Navy, for PE 63573N. million in RDT&E, Navy, for PE 63573N.
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The committee’s intent is that the increased funding in PE 63178N be used for: the USV The committee’s intent is that the increased funding in PE 63178N be used for: the USV
main engine and electrical generator qualification testing directed elsewhere in this Act main engine and electrical generator qualification testing directed elsewhere in this Act
($70.0 million); USV autonomy development, which may include conversion of existing ($70.0 million); USV autonomy development, which may include conversion of existing
vessels ($45.0 million); accelerating ITF testing ($75.0 million); and accelerating the vessels ($45.0 million); accelerating ITF testing ($75.0 million); and accelerating the
qualification of silicon carbide power modules ($10.0 million). (Pages 97-98) qualification of silicon carbide power modules ($10.0 million). (Pages 97-98)
S.Rept. 116-236 also states S.Rept. 116-236 also states
Advanced undersea prototyping
The budget request included $21.5 billion in Research, Development, Test, and Evaluation The budget request included $21.5 billion in Research, Development, Test, and Evaluation
(RDT&E), Navy, of which $115.9 million was for PE 64536N advanced undersea (RDT&E), Navy, of which $115.9 million was for PE 64536N advanced undersea
prototyping. prototyping.
The committee notes that the Snakehead and Orca [XLUUV] test strategies require updates The committee notes that the Snakehead and Orca [XLUUV] test strategies require updates
to enable certification by the Director of Operational Test and Evaluation in accordance to enable certification by the Director of Operational Test and Evaluation in accordance
with the Senate report accompanying the Department of Defense Appropriations Bill, with the Senate report accompanying the Department of Defense Appropriations Bill,
2020, incorporated into the Consolidated Appropriations Act, 2020 (S. Rept. 116–103). 2020, incorporated into the Consolidated Appropriations Act, 2020 (S. Rept. 116–103).
Additionally, the committee isAdditionally, the committee is aware of Orca testing delays. aware of Orca testing delays.
Congressional Research Service 35 link to page 32 Navy Large Unmanned Surface and Undersea Vehicles Accordingly, the committee recommends a decrease of $20.0 million, for a total of $95.9 Accordingly, the committee recommends a decrease of $20.0 million, for a total of $95.9
million, in RDT&E, Navy, for PE 64536N. (Page 100) million, in RDT&E, Navy, for PE 64536N. (Page 100)
A September 14, 2020, letter and enclosure from the Office of Budget Management (OMB) to the A September 14, 2020, letter and enclosure from the Office of Budget Management (OMB) to the
chairmen and ranking members of the Senate and House Armed Services Committee about chairmen and ranking members of the Senate and House Armed Services Committee about
concerns that the Administration has with certain provisions in S. 4049 stated in part: concerns that the Administration has with certain provisions in S. 4049 stated in part:
The Administration strongly objects to the absence of authorization language and funding The Administration strongly objects to the absence of authorization language and funding
to procure critical prototype vessels. The Administration believes that rigorous land-and to procure critical prototype vessels. The Administration believes that rigorous land-and
sea-based testing is needed for a successful Large Unmannedsea-based testing is needed for a successful Large Unmanned Surface Vessel Program Surface Vessel Program
(LUSV), providing a lethal, distributed new capability to the fleet. These funds are critical (LUSV), providing a lethal, distributed new capability to the fleet. These funds are critical
to reduce risk and conduct integration and testing to ensure DOD is postured to transition to reduce risk and conduct integration and testing to ensure DOD is postured to transition
LUSV to a program of record in FY 2023. The Administration urges Congress to fuly LUSV to a program of record in FY 2023. The Administration urges Congress to fuly
support this critical capability at the levels in the FY 2021 President’s Budget Request.support this critical capability at the levels in the FY 2021 President’s Budget Request.5458
Conference
The conference report (H.Rept. 116-617 of December 3, 2020) on H.R. 6395/P.L. 116-283 of The conference report (H.Rept. 116-617 of December 3, 2020) on H.R. 6395/P.L. 116-283 of
January 1, 2021, recommends the funding levels shown in the authorization conference column of January 1, 2021, recommends the funding levels shown in the authorization conference column of
Table 2. The recommended reduction of $204.8 mil ion for line 27 is for “LUSV additional The recommended reduction of $204.8 mil ion for line 27 is for “LUSV additional
prototypes’ ($159.3 mil ion) and “Unmanned surface vehicle enabling capabilities—payload prototypes’ ($159.3 mil ion) and “Unmanned surface vehicle enabling capabilities—payload
program reduction” ($45.5 mil ion). (PDF pages 4322-4323 of 4517) The recommended program reduction” ($45.5 mil ion). (PDF pages 4322-4323 of 4517) The recommended
reduction of $23.256 mil ion for line 89 is for “Excess scope adjustments.” (PDF page 4326 of reduction of $23.256 mil ion for line 89 is for “Excess scope adjustments.” (PDF page 4326 of
4517) 4517)
Section 122 of the conference version of H.R. 6395 states: of the conference version of H.R. 6395 states:
SEC. 122. LIMITATIONS ON NAVY MEDIUM AND LARGE UNMANNED SEC. 122. LIMITATIONS ON NAVY MEDIUM AND LARGE UNMANNED
SURFACE VESSELS. SURFACE VESSELS.
(a) MILESTONE B APPROVAL REQUIREMENTS.—Milestone B approval may not be (a) MILESTONE B APPROVAL REQUIREMENTS.—Milestone B approval may not be
granted for a covered program unless such program accomplishes prior to and incorporates granted for a covered program unless such program accomplishes prior to and incorporates
into such approval— into such approval—

~~54 Letter dated September 14, 2020, from Russell T . Vought, Director, Office of Management and Budget , to Senator~~
~~James M. Inhofe, Senator Jack Reed, Representative Adam Smith, and Representative Mac T hornberry with respect to~~
~~the National Defense Authorization Act (NDAA) for FY2021, PDF page 9 of 14, accessed September 17, 2020, at~~
~~https://www.whitehouse.gov/omb/legislative/letters/.~~
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(1) qualification by the Senior Technical Authority of— (1) qualification by the Senior Technical Authority of—
(A) at least one representative main propulsion system, including the fuel and lube oil (A) at least one representative main propulsion system, including the fuel and lube oil
systems; and systems; and
(B) at least one representative electrical generation and distribution system; (B) at least one representative electrical generation and distribution system;
(2) final results of test programs of engineering development models or prototypes showing (2) final results of test programs of engineering development models or prototypes showing
that critical systems designated pursuant to subparagraph (C) of section 8669b(c)(2) of title that critical systems designated pursuant to subparagraph (C) of section 8669b(c)(2) of title
10, United States Code, are demonstrated as required by subparagraph (I) of that section; 10, United States Code, are demonstrated as required by subparagraph (I) of that section;
and (3) a determination by the milestone decision authority of the minimum number of and (3) a determination by the milestone decision authority of the minimum number of
vessels, discrete test events, performance parameters to be tested, and schedule required to vessels, discrete test events, performance parameters to be tested, and schedule required to
complete initial operational test and evaluation and demonstrate operational suitability and complete initial operational test and evaluation and demonstrate operational suitability and
operational effectiveness. operational effectiveness.
(b) QUALIFICATION REQUIRES OPERATIONAL DEMONSTRATION.—The (b) QUALIFICATION REQUIRES OPERATIONAL DEMONSTRATION.—The
qualification required in subsection (a)(1) shall include a land-based operational qualification required in subsection (a)(1) shall include a land-based operational
demonstration of the systems concerned in the vessel-representative form, fit, and function demonstration of the systems concerned in the vessel-representative form, fit, and function
58 Letter dated September 14, 2020, from Russell T . Vought, Director, Office of Management and Budget, to Senator James M. Inhofe, Senator Jack Reed, Representative Adam Smith, and Representative Mac T hornberry with respect to the National Defense Authorization Act (NDAA) for FY2021, PDF page 9 of 14, accessed September 17, 2020, at https://www.whitehouse.gov/omb/legislative/letters/. Congressional Research Service 36 Navy Large Unmanned Surface and Undersea Vehicles for not less than 720 continuous hours without preventative maintenance, corrective for not less than 720 continuous hours without preventative maintenance, corrective
maintenance, emergent repair, or any other form of repair or maintenance. maintenance, emergent repair, or any other form of repair or maintenance.
(c) USE OF QUALIFIED SYSTEMS.—The Secretary of the Navy shall require that (c) USE OF QUALIFIED SYSTEMS.—The Secretary of the Navy shall require that
covered programs use only main propulsion systems and electrical generation and covered programs use only main propulsion systems and electrical generation and
distribution systems that are qualified under subsection (a)(1). distribution systems that are qualified under subsection (a)(1).
(d) LIMITATION ON CONTRACT AWARD OR FUNDING.— (d) LIMITATION ON CONTRACT AWARD OR FUNDING.—
(1) IN GENERAL.—The Secretary may not award a detail design or construction contract, (1) IN GENERAL.—The Secretary may not award a detail design or construction contract,
or obligate funds from a procurement account, for a covered program until such program or obligate funds from a procurement account, for a covered program until such program
receives Milestone B approval and the milestone decision authority notifies the receives Milestone B approval and the milestone decision authority notifies the
congressional defense committees, in writing, of the actions taken to comply with the congressional defense committees, in writing, of the actions taken to comply with the
requirements under this section. requirements under this section.
(2) EXCEPTION.—The limitation in paragraph (1) does not apply to advanced (2) EXCEPTION.—The limitation in paragraph (1) does not apply to advanced
procurement for government-furnished equipment. procurement for government-furnished equipment.
(e) DEFINITIONS.—In this section: (e) DEFINITIONS.—In this section:
(1) COVERED PROGRAM.—The term ‘‘covered program’’ means a program for— (1) COVERED PROGRAM.—The term ‘‘covered program’’ means a program for—
(A) medium unmanned surface vessels; or (A) medium unmanned surface vessels; or
(B) large unmanned surface vessels. (B) large unmanned surface vessels.
(2) MILESTONE B APPROVAL.—The term ‘‘Milestone B approval’’ has the meaning (2) MILESTONE B APPROVAL.—The term ‘‘Milestone B approval’’ has the meaning
given the term in section 2366(e)(7) of title 10, United States Code. given the term in section 2366(e)(7) of title 10, United States Code.
(3) MILESTONE DECISION AUTHORITY.—The term ‘‘milestone decision authority’’ (3) MILESTONE DECISION AUTHORITY.—The term ‘‘milestone decision authority’’
means the official within the Department of Defense designated with the overal means the official within the Department of Defense designated with the overal
responsibility and authority for acquisition decisions for an acquisition program, including responsibility and authority for acquisition decisions for an acquisition program, including
authority to approve entry of the program into the next phase of the acquisition process. authority to approve entry of the program into the next phase of the acquisition process.
(4) SENIOR TECHNICAL AUTHORITY.—The term ‘‘Senior Technical Authority’’ has (4) SENIOR TECHNICAL AUTHORITY.—The term ‘‘Senior Technical Authority’’ has
the meaning provided for in section 8669b of title 10, United States Code. the meaning provided for in section 8669b of title 10, United States Code.
Regarding Section 122, H.Rept. 116-617 states: Regarding Section 122, H.Rept. 116-617 states:
Limitations on Navy medium and large unmanned surface vessels (sec. 122) Limitations on Navy medium and large unmanned surface vessels (sec. 122)
The Senate amendment contained a provision (sec. 122) that would require that certain The Senate amendment contained a provision (sec. 122) that would require that certain
technical conditions be met prior to Milestone B approval for medium and large unmanned technical conditions be met prior to Milestone B approval for medium and large unmanned
surface vessels. surface vessels.
The House bill contained no similar provision. The House bill contained no similar provision.
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The House recedes with an amendment that would reduce the minimum number The House recedes with an amendment that would reduce the minimum number ~~o f~~of certain certain
systems to be qualified and the period of continuous operation of such systems to satisfy systems to be qualified and the period of continuous operation of such systems to satisfy
qualification requirements, as well as allow the Secretary of the Navy to release certain qualification requirements, as well as allow the Secretary of the Navy to release certain
requests for proposals and contract for certain government furnished equipment prior to requests for proposals and contract for certain government furnished equipment prior to
Milestone B approval for medium and large unmanned surface vessels. (PDF page 3730 of Milestone B approval for medium and large unmanned surface vessels. (PDF page 3730 of
4517) 4517)
Section 227 of the conference version of H.R. 6395 states: of the conference version of H.R. 6395 states:
SEC. 227. LIMITATION ON CONTRACT AWARDS FOR CERTAIN UNMANNED SEC. 227. LIMITATION ON CONTRACT AWARDS FOR CERTAIN UNMANNED
VESSELS. VESSELS.
(a) LIMITATION.—Not less than 30 days before awarding a contract using any funds from (a) LIMITATION.—Not less than 30 days before awarding a contract using any funds from
the Research, Development, Test, and Evaluation, Navy account for the purchase of a the Research, Development, Test, and Evaluation, Navy account for the purchase of a
covered vessel, the Secretary of the Navy shall submit to the congressional defense covered vessel, the Secretary of the Navy shall submit to the congressional defense
committees a report and certification described in subsection (c) for suchcommittees a report and certification described in subsection (c) for such contract and contract and
covered vessel. covered vessel.
Congressional Research Service 37 Navy Large Unmanned Surface and Undersea Vehicles (b) COVERED VESSELS.—For purposes of this section, a covered vessel is one of the (b) COVERED VESSELS.—For purposes of this section, a covered vessel is one of the
following: following:
(1) A large unmanned surface vessel (LUSV). (1) A large unmanned surface vessel (LUSV).
(2) A medium unmanned surface vehicle (MUSV). (2) A medium unmanned surface vehicle (MUSV).
(c) REPORT AND CERTIFICATION DESCRIBED.—A report and certification (c) REPORT AND CERTIFICATION DESCRIBED.—A report and certification
described in this subsection regarding a contract for a covered vessel is — described in this subsection regarding a contract for a covered vessel is —
(1) a report— (1) a report—
(A) submitted to the congressional defense committees not later than 60 days after the date (A) submitted to the congressional defense committees not later than 60 days after the date
of the completion of an independent technical risk assessment for such covered vessel;of the completion of an independent technical risk assessment for such covered vessel;
(B) on the findings and recommendations of the Senior Technical Authority for the class (B) on the findings and recommendations of the Senior Technical Authority for the class
of naval vessels that includes the covered vessel with respect to such assessment; and of naval vessels that includes the covered vessel with respect to such assessment; and
(C) that includes such assessment; and (C) that includes such assessment; and
(2) a certification, submitted to the congressional defense committees with the report (2) a certification, submitted to the congressional defense committees with the report
described in paragraph (1), that certifies that— described in paragraph (1), that certifies that—
(A) the Secretary has determined, in conjunction with the Senior Technical Authority for (A) the Secretary has determined, in conjunction with the Senior Technical Authority for
the class of naval vessels that includes the covered vessel, that the critical mission, hul, the class of naval vessels that includes the covered vessel, that the critical mission, hul,
mechanical, and electrical subsystems of the covered vessel— mechanical, and electrical subsystems of the covered vessel—
(i) have been demonstrated in vessel representative form, fit, and function; and (i) have been demonstrated in vessel representative form, fit, and function; and
(ii) have achieved performance levels equal to or greater than applicable Depart (ii) have achieved performance levels equal to or greater than applicable Depart
ment of Defense threshold requirements for such class of vessels or have maturation plans ment of Defense threshold requirements for such class of vessels or have maturation plans
in place to achieve such performance levels prior to transition to a program of record, in place to achieve such performance levels prior to transition to a program of record,
including a detailed description of such achieved performance or maturation plans; and including a detailed description of such achieved performance or maturation plans; and
(B) such contract is necessary to meet Department research, development, test, and (B) such contract is necessary to meet Department research, development, test, and
evaluation objectives for such covered vessel that cannot otherwise be met through further evaluation objectives for such covered vessel that cannot otherwise be met through further
land based subsystem prototyping or other demonstration approaches. land based subsystem prototyping or other demonstration approaches.
(d) LIMITATION ON WEAPON INTEGRATION.— (d) LIMITATION ON WEAPON INTEGRATION.—
(1) IN GENERAL.—The Secretary may not integrate any offensive weapon system into a (1) IN GENERAL.—The Secretary may not integrate any offensive weapon system into a
covered vessel until the date that is 30 days after the date on which the Secretary of the covered vessel until the date that is 30 days after the date on which the Secretary of the
Defense certifies to the congressional defense committees that such covered vessel— Defense certifies to the congressional defense committees that such covered vessel—
(A) will comply with applicable laws, including the law of armed conflict, with a detailed (A) will comply with applicable laws, including the law of armed conflict, with a detailed
explanation of how such compliance will be achieved; and explanation of how such compliance will be achieved; and
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(B) has been determined to be the most appropriate surface vessel to meet applicable of (B) has been determined to be the most appropriate surface vessel to meet applicable of
fensive military requirements. fensive military requirements.
(2) COMPLETION OF ANALYSIS OF ALTERNATIVES REQUIRED.—A (2) COMPLETION OF ANALYSIS OF ALTERNATIVES REQUIRED.—A
determination under paragraph (1)(B) shall be made only after the completion of an determination under paragraph (1)(B) shall be made only after the completion of an
analysis of alternatives that— analysis of alternatives that—
(A) is described in subsection (e)(1); and (A) is described in subsection (e)(1); and
(B) supports such determination. (B) supports such determination.
(e) SUBMITTAL OF ANALYSIS OF ALTERNATIVES TO CONGRESS.— (e) SUBMITTAL OF ANALYSIS OF ALTERNATIVES TO CONGRESS.—
(1) ANALYSIS OF ALTERNATIVES REQUIRED.—Not later than one year after the (1) ANALYSIS OF ALTERNATIVES REQUIRED.—Not later than one year after the
date of the enactment of this Act, the Secretary shall date of the enactment of this Act, the Secretary shall ~~submit~~s ubmit to the congressional defense to the congressional defense
committees an analysis of alternatives regarding covered vessels with an integrated committees an analysis of alternatives regarding covered vessels with an integrated
offensive weapon system and the most appropriate surface vessels to meet applicable offensive weapon system and the most appropriate surface vessels to meet applicable
offensive military requirements. offensive military requirements.
Congressional Research Service 38 Navy Large Unmanned Surface and Undersea Vehicles (2) CONTENTS.—The analysis submitted under paragraph (1) shall include, at a (2) CONTENTS.—The analysis submitted under paragraph (1) shall include, at a
minimum, the following elements: minimum, the following elements:
(A) Identification of capability needs applicable to such covered vessels, including (A) Identification of capability needs applicable to such covered vessels, including
offensive strike capability and capacity from the Mark–41 vertical launch system. offensive strike capability and capacity from the Mark–41 vertical launch system.
(B) Projected threats. (B) Projected threats.
(C) Projected operational environments. (C) Projected operational environments.
(D) Projected operational concepts. (D) Projected operational concepts.
(E) Projected operational requirements. (E) Projected operational requirements.
(F) Status quo (baseline) and surface vessel alternatives able to meet the capability needs (F) Status quo (baseline) and surface vessel alternatives able to meet the capability needs
identified in subparagraph (A), including— identified in subparagraph (A), including—
(i) modified naval vessel designs, including amphibious ships, expeditionary fast (i) modified naval vessel designs, including amphibious ships, expeditionary fast
transports, and expeditionary sea bases; transports, and expeditionary sea bases;
(ii) modified commercial vessel designs, including container ships and bulk carriers; (ii) modified commercial vessel designs, including container ships and bulk carriers;
(iii) new naval vessel designs; and (iii) new naval vessel designs; and
(iv) new commercial vessel designs. (iv) new commercial vessel designs.
(G) Vessel design, performance, and measures of effectiveness of the baseline and each (G) Vessel design, performance, and measures of effectiveness of the baseline and each
alternative, including a description of critical mission, hull, mechanical, and electrical alternative, including a description of critical mission, hull, mechanical, and electrical
subsystems. subsystems.
(H) Estimated research, development, test, and evaluation cost of baseline and each (H) Estimated research, development, test, and evaluation cost of baseline and each
alternative. alternative.
(I) Estimated lead vessel and average follow-on vessel procurement costs of baseline and (I) Estimated lead vessel and average follow-on vessel procurement costs of baseline and
each alternative. each alternative.
(J) Life-cycle costs of baseline and each alternative. (J) Life-cycle costs of baseline and each alternative.
(K) Life-cycle cost per baseline vessel and each alternative vessel. (K) Life-cycle cost per baseline vessel and each alternative vessel.
(L) Life-cycle cost per specified quantity of baseline vessels and alternative vessels. (L) Life-cycle cost per specified quantity of baseline vessels and alternative vessels.
(M) Technology readiness assessment of baseline and each alternative. (M) Technology readiness assessment of baseline and each alternative.
(N) Analysis of alternatives, including relative cost and capability performance of base line (N) Analysis of alternatives, including relative cost and capability performance of base line
and alternative vessels. and alternative vessels.
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(O) Trade-off analysis. (O) Trade-off analysis.
(P) Sensitivity analysis. (P) Sensitivity analysis.
(Q) Conclusions and recommendations, which if the Secretary of Defense deems it (Q) Conclusions and recommendations, which if the Secretary of Defense deems it
appropriate, shall include the determination required under subsection (d)(1)(B). appropriate, shall include the determination required under subsection (d)(1)(B).
(f) DEFINITIONS.—In this section: (f) DEFINITIONS.—In this section:
(1) The term ‘‘critical mission, hull, mechanical, and electrical subsystems’’, with respect (1) The term ‘‘critical mission, hull, mechanical, and electrical subsystems’’, with respect
to a covered vessel, includes the following subsystems: to a covered vessel, includes the following subsystems:
(A) Command, control, communications, computers, intelligence, surveillance, and (A) Command, control, communications, computers, intelligence, surveillance, and
reconnaissance. reconnaissance.
(B) Autonomous vessel navigation, vessel control, contact management, and (B) Autonomous vessel navigation, vessel control, contact management, and contact contact
avoidance. avoidance.
(C) Communications security, including cryptopgraphy, encryption, and decryption. (C) Communications security, including cryptopgraphy, encryption, and decryption.
Congressional Research Service 39 link to page 32 link to page 32 Navy Large Unmanned Surface and Undersea Vehicles (D) Main engines, including the lube oil, fuel oil, and other supporting systems. (D) Main engines, including the lube oil, fuel oil, and other supporting systems.
(E) Electrical generation and distribution, including supporting systems. (E) Electrical generation and distribution, including supporting systems.
(F) Military payloads. (F) Military payloads.
(G) Any other subsystem identified as critical by the Senior Technical Authority for the (G) Any other subsystem identified as critical by the Senior Technical Authority for the
class of naval vessels that includes the covered vessel. class of naval vessels that includes the covered vessel.
(2) The term ‘‘Senior Technical Authority’’ means, with respect to a class of naval vessels, (2) The term ‘‘Senior Technical Authority’’ means, with respect to a class of naval vessels,
the Senior Technical Authority designated for that class of naval vessels under section the Senior Technical Authority designated for that class of naval vessels under section
8669b of title 10, United States Code. 8669b of title 10, United States Code.
Regarding Section 227, H.Rept. 116-617 states: Regarding Section 227, H.Rept. 116-617 states:
Limitation on contract awards for certain unmanned vessels (sec. 227)
The House bill contained a provision (sec. 230) that would prohibit the procurement of any The House bill contained a provision (sec. 230) that would prohibit the procurement of any
large unmanned surface vessels in fiscal year 2021 until a certification regarding large unmanned surface vessels in fiscal year 2021 until a certification regarding
technology maturity has been submitted to the Congress, as well as prohibit the inclusion technology maturity has been submitted to the Congress, as well as prohibit the inclusion
of offensive weapons systems in such vessels until the Secretary of Defense certifies how of offensive weapons systems in such vessels until the Secretary of Defense certifies how
these systems will comply with the Law of Armed Conflict. these systems will comply with the Law of Armed Conflict.
The Senate amendment contained a similar provision (sec. 237) that would require the The Senate amendment contained a similar provision (sec. 237) that would require the
submission of a certification by the Under Secretary of Defense for Research and submission of a certification by the Under Secretary of Defense for Research and
Engineering prior to contracting for certain vessels. Engineering prior to contracting for certain vessels.
The House recedes with an amendment that would change the submitter of the certification The House recedes with an amendment that would change the submitter of the certification
to the Secretary of the Navy, remove unmanned underwater vehicles as covered vessels, to the Secretary of the Navy, remove unmanned underwater vehicles as covered vessels,
and add a limitation on the integration of offensive weapons into covered vessels until an and add a limitation on the integration of offensive weapons into covered vessels until an
analysis of alternatives is conducted and a Secretary of Defense certification is made. (PDF analysis of alternatives is conducted and a Secretary of Defense certification is made. (PDF
page 3763 of 4517) page 3763 of 4517)
FY2021 DOD Appropriations Act (H.R. 7617/S. XXXX/Division C of
H.R. 133/P.L. 116-260)
House
The House Appropriations Committee, in its report (H.Rept. 116-453 of July 16, 2020) on H.R. The House Appropriations Committee, in its report (H.Rept. 116-453 of July 16, 2020) on H.R.
7617, recommended the funding levels shown in the HAC column 7617, recommended the funding levels shown in the HAC column of Table 2. A recommended A recommended
reduction of $159.3 mil ion for LUSV is for “LUSV additional prototypes.” (Page 266) A reduction of $159.3 mil ion for LUSV is for “LUSV additional prototypes.” (Page 266) A
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recommended reduction of $45.5 mil ion for LUSV and MUSV enabling technologies is for recommended reduction of $45.5 mil ion for LUSV and MUSV enabling technologies is for
“Unmanned surface vehicle enabling capabilities—payload program reduction.” (Page 266) The “Unmanned surface vehicle enabling capabilities—payload program reduction.” (Page 266) The
recommended reduction of $35.626 mil ion for line 89 is for “Test and evaluation delays.” (Page recommended reduction of $35.626 mil ion for line 89 is for “Test and evaluation delays.” (Page
268) 268)
Senate
The Senate Appropriations Committee, in the explanatory statement for S. XXXX that the The Senate Appropriations Committee, in the explanatory statement for S. XXXX that the
committee released on November 10, 2020, recommended the funding levels shown in the SAC committee released on November 10, 2020, recommended the funding levels shown in the SAC
column column of Table 2. The recommended reduction of $372.842 mil ion to line 27 reflects a The recommended reduction of $372.842 mil ion to line 27 reflects a
restructuring of funding for the LUSV and MUSV programs and their enabling technologies restructuring of funding for the LUSV and MUSV programs and their enabling technologies
involving seven changes to requested funding levels, including three transfers of funding totaling involving seven changes to requested funding levels, including three transfers of funding totaling
$55.402 mil ion to a newly created line 27A for MUSVs. (Pages 185-186) The committee $55.402 mil ion to a newly created line 27A for MUSVs. (Pages 185-186) The committee
recommended a reduction of $23.256 mil ion to line 89 for “Restoring acquisition accountability: recommended a reduction of $23.256 mil ion to line 89 for “Restoring acquisition accountability:
Excess scope adjustments.” (Page 187). Excess scope adjustments.” (Page 187).
Congressional Research Service 40 link to page 32 Navy Large Unmanned Surface and Undersea Vehicles The committee’s explanatory statement states: The committee’s explanatory statement states:
Unmanned Surface Vessels.—The fiscal year 2021 President’s budget request includes .—The fiscal year 2021 President’s budget request includes
$437,740,000 for the procurement of two Large Unmanned Surface Vessels [LUSVs] and $437,740,000 for the procurement of two Large Unmanned Surface Vessels [LUSVs] and
containerized payloads, as well as for the development of a modified combat system and containerized payloads, as well as for the development of a modified combat system and
enabling capabilities to prototype and demonstrate technologies in support enabling capabilities to prototype and demonstrate technologies in support ofo f a LUSV a LUSV
program of record in fiscal year 2023 that includes an integrated Vertical Launch System program of record in fiscal year 2023 that includes an integrated Vertical Launch System
[VLS] payload. Additionally, the fiscal year 2021 President’s budget request includes [VLS] payload. Additionally, the fiscal year 2021 President’s budget request includes
$26,302,000 to complete detailed design and oversight of a prototype $26,302,000 to complete detailed design and oversight of a prototype ~~Medium~~Med ium Unmanned Unmanned
Surface Vessel [MUSV] that carries non-kinetic payloads, and the Navy has budgeted Surface Vessel [MUSV] that carries non-kinetic payloads, and the Navy has budgeted
funds for the procurement of an additional MUSV in fiscal year 2023. Subsequent to the funds for the procurement of an additional MUSV in fiscal year 2023. Subsequent to the
budget submission, the Navy revised its fiscal year 2021 acquisition and budget requests budget submission, the Navy revised its fiscal year 2021 acquisition and budget requests
for both the LUSV and MUSV programs and requested that funds be appropriated for the for both the LUSV and MUSV programs and requested that funds be appropriated for the
first year of a two-year Comprehensive Reliability Plan [CRP] for both programs in lieu of first year of a two-year Comprehensive Reliability Plan [CRP] for both programs in lieu of
additional LUSV platforms and payloads, while maintaining the additional LUSV platforms and payloads, while maintaining the ~~Navy~~Na vy’s previously ’s previously
planned fiscal year 2023 establishment of a LUSV program of record with an integrated planned fiscal year 2023 establishment of a LUSV program of record with an integrated
VLS. VLS.
The Committee notes that the mission requirements and concepts of operations for the The Committee notes that the mission requirements and concepts of operations for the
LUSV and MUSV programs remain an evolving work in progress, and that concerns LUSV and MUSV programs remain an evolving work in progress, and that concerns
previously expressed by the appropriations committees with respect to a VLS payload on previously expressed by the appropriations committees with respect to a VLS payload on
a LUSV have not been sufficiently addressed. However, the Committee does believe that a LUSV have not been sufficiently addressed. However, the Committee does believe that
demonstrating the reliability of some key technologies of unmanned demonstrating the reliability of some key technologies of unmanned ~~surface~~su rface vessels is vessels is
critical to acquisition success of any such platforms. critical to acquisition success of any such platforms.
As such, the Committee recommends fully funding the MUSV program in fiscal year 2021, As such, the Committee recommends fully funding the MUSV program in fiscal year 2021,
to include the Navy’s requested realignment of $29,100,000 from LUSV to the MUSV to include the Navy’s requested realignment of $29,100,000 from LUSV to the MUSV
program in support of a MUSV CRP. The Committee also recommends full funding for program in support of a MUSV CRP. The Committee also recommends full funding for
the development of enabling capabilities such as autonomy, command and control, sensors, the development of enabling capabilities such as autonomy, command and control, sensors,
and experimentation. The Committee recommends no funding for additional LUSVs, a and experimentation. The Committee recommends no funding for additional LUSVs, a
LUSV combat system, combat system modifications, or LUSV payloads in fiscal year LUSV combat system, combat system modifications, or LUSV payloads in fiscal year
2021. The Committee notes that the Navy will take possession of two prototype LUSVs 2021. The Committee notes that the Navy will take possession of two prototype LUSVs
from the Strategic Capabilities Office at the end of fiscal year 2021 and that in fiscal year from the Strategic Capabilities Office at the end of fiscal year 2021 and that in fiscal year
2020, Congress appropriated funding for two additional LUSVs to the Navy that are also 2020, Congress appropriated funding for two additional LUSVs to the Navy that are also
scheduled to deliver to the Navy at the end of fiscal year 2021. The Committee believes scheduled to deliver to the Navy at the end of fiscal year 2021. The Committee believes
that the Navy has sufficient prototypes on-hand to define LUSV and MUSV missions, that the Navy has sufficient prototypes on-hand to define LUSV and MUSV missions,
program requirements, and concepts of operations in alignment with key stakeholders. program requirements, and concepts of operations in alignment with key stakeholders.
Finally, Congress in fiscal year 2020 appropriated funding for concept design studies to Finally, Congress in fiscal year 2020 appropriated funding for concept design studies to
inform future detail design and construction of a LUSV and recommends an additional inform future detail design and construction of a LUSV and recommends an additional
$10,000,000, as requested by the Navy, in fiscal year 2021 for these efforts. The Committee $10,000,000, as requested by the Navy, in fiscal year 2021 for these efforts. The Committee
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notes that this does not constitute endorsement of integrating VLS on LUSVs. (Pages 191-notes that this does not constitute endorsement of integrating VLS on LUSVs. (Pages 191-
192) 192)
Conference
The explanatory statement for the final version of the FY2021 DOD Appropriations Act (Division The explanatory statement for the final version of the FY2021 DOD Appropriations Act (Division
C of H.R. 133/P.L. 116-260 of December 26, 2020, the Consolidated Appropriations Act, 2021) C of H.R. 133/P.L. 116-260 of December 26, 2020, the Consolidated Appropriations Act, 2021)
provides the funding levels shown in the appropriation conference column provides the funding levels shown in the appropriation conference column of Table 2. The . The
reduction of $370.342 mil ion to line 27 reflects a restructuring of funding for the LUSV and reduction of $370.342 mil ion to line 27 reflects a restructuring of funding for the LUSV and
MUSV programs and their enabling technologies involving eight changes to requested funding MUSV programs and their enabling technologies involving eight changes to requested funding
levels, including two transfers of funding totaling $55.402 mil ion to a newly created line 27A for levels, including two transfers of funding totaling $55.402 mil ion to a newly created line 27A for
MUSVs. (PDF page 310 of 469) The reduction of $26.046 mil ion to line 89 is for “Test and MUSVs. (PDF page 310 of 469) The reduction of $26.046 mil ion to line 89 is for “Test and
evaluation delays.” (PDF page 313 of 469) evaluation delays.” (PDF page 313 of 469)

Congressional Research Service 41 Navy Large Unmanned Surface and Undersea Vehicles
Author Information

Ronald O'Rourke Ronald O'Rourke

Specialist in Naval Affairs Specialist in Naval Affairs

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