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

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Navy Large Unmanned Surface and Undersea
~~July 15~~August 2, 2021 , 2021
Vehicles: Background and Issues for Congress
Ronald O'Rourke
The Navy wants to develop and procure three types of large unmanned vehicles (UVs) called The Navy wants to develop and procure three types of large unmanned vehicles (UVs) called
Specialist in Naval Affairs Specialist in Naval Affairs
Large Unmanned Surface Vehicles (LUSVs), Medium Unmanned Surface Vehicles (MUSVs), Large Unmanned Surface Vehicles (LUSVs), Medium Unmanned Surface Vehicles (MUSVs),

and Extra-Large Unmanned Undersea Vehicles (XLUUVs). The Navy’s proposed FY2022 and Extra-Large Unmanned Undersea Vehicles (XLUUVs). The Navy’s proposed FY2022
budget requests $434.1 million in research and development funding for these large UVs and budget requests $434.1 million in research and development funding for these large UVs and

their enabling technologies. their enabling technologies.
The Navy wants to acquire these large UVs as part of an effort to shift the Navy to a more distributed fleet architecture. The Navy wants to acquire these large UVs as part of an effort to shift the Navy to a more distributed fleet architecture.
Compared to the current fleet architecture, this more distributed architecture is to include a smaller proportion of larger ships Compared to the current fleet architecture, this more distributed architecture is to include a smaller proportion of larger ships
(such as large-deck aircraft carriers, cruisers, destroyers, large amphibious ships, and large resupply ships), a larger (such as large-deck aircraft carriers, cruisers, destroyers, large amphibious ships, and large resupply ships), a larger
proportion of smaller ships (such as frigates, corvettes, smaller amphibious ships, and smaller resupply ships), and a new proportion of smaller ships (such as frigates, corvettes, smaller amphibious ships, and smaller resupply ships), and a new
third tier of large UVs. third tier of large UVs.
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, which would make them the size of a corvette. (i.e., a ship larger than a patrol craft and smaller than a frigate). The tons, which would make them the size of a corvette. (i.e., a ship larger than a patrol craft and smaller than a frigate). The
Navy wants LUSVs to be low-cost, high-endurance, reconfigurable ships based on commercial ship designs, with ample 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 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 described as 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, particularly in the optionally or lightly manned ships, because they might sometimes have a few onboard crew members, particularly in the
nearer term as the Navy works out LUSV enabling technologies and operational concepts.nearer term as the Navy works out LUSV enabling technologies and operational concepts.
The Navy defines MUSVs as being 45 feet to 190 feet long, with displacements of roughly 500 tons The Navy defines MUSVs as being 45 feet to 190 feet long, with displacements of roughly 500 tons , which would make , which would make
them the size of a patrol craft. The Navy wants MUSVs, like LUSVs, to be low-cost, high-endurance, reconfigurable ships them the size of a patrol craft. The Navy wants MUSVs, like LUSVs, to be low-cost, high-endurance, reconfigurable ships
that can accommodate various payloads. Initial payloads for MUSVs are to be intelligence, surveillance and reconnaissance that can accommodate various payloads. Initial payloads for MUSVs are to be intelligence, surveillance and reconnaissance
(ISR) payloads and electronic warfare (EW) systems. (ISR) payloads and electronic warfare (EW) systems.
The first five XLUUVs were funded in FY2019; they are being built by Boeing and are roughly the size of a subway car. The The first five XLUUVs were funded in FY2019; they are being built by Boeing and are roughly the size of a subway car. The
Navy wants procure additional XLUUVs starting in FY2024. The Navy wants to use XLUUVs to, among other things, Navy wants procure additional XLUUVs starting in FY2024. The Navy wants to use XLUUVs to, among other things,
covertly deploy the Hammerhead mine, a planned mine that would be tethered to the seabed and armed with an covertly deploy the Hammerhead mine, a planned mine that would be tethered to the seabed and armed with an
antisubmarine torpedo, broadly similar to the Navy’s Cold War-era CAPTOR (encapsulated torpedo) mine. antisubmarine torpedo, broadly similar to the Navy’s Cold War-era CAPTOR (encapsulated torpedo) mine.
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 acquisition strategies for these programs; technical, schedule, and basis for the more distributed fleet architecture; the Navy’s acquisition strategies for these programs; technical, schedule, and
cost risk in the programs; the proposed annual procurement rates for the programs; the industrial base implications of the 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 programs; and 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 for the fiscal year in question. whether the Navy has accurately priced the work it is proposing to do on the programs for the fiscal year in question.
In marking up the Navy’s proposed FY2020 and FY2021 budgets, the congressional defense committees expressed concerns In marking up the Navy’s proposed FY2020 and FY2021 budgets, the congressional defense committees expressed concerns
over whether the Navy’s acquisition strategies provided enough time to adequately develop concepts of operations and key over whether the Navy’s acquisition strategies provided enough time to adequately develop concepts of operations and key
technologies for these large UVs, particularly the LUSV, and included legislative provisions intended to address these technologies for these large UVs, particularly the LUSV, and included legislative provisions intended to address these
concerns.concerns. In response to these markups, the Navy has restructured its acquisition strategy for the LUSV program so as to In response to these markups, the Navy has restructured its acquisition strategy for the LUSV program so as to
comply with these legislative provisions and provide more time for developing operational concepts and key technologies comply with these legislative provisions and provide more time for developing operational concepts and key technologies
before entering into serial production of deployable units. before entering into serial production of deployable units.
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Tables
Table 1. Congressional Action on FY2022 Large UV Funding Request ....................................... 29

Contacts
Author Information ........................................................................................................................ 30 29

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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 FY2022 and large unmanned vehicles (UVs) that the Navy wants to develop and procure in FY2022 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’s proposed FY2022 budget requests $434.1 than the Navy’s current fleet architecture. The Navy’s proposed FY2022 budget requests $434.1
~~mil ion~~ million in research and development funding for these large UVs and their enabling technologies. in research and development funding for these large UVs and their enabling technologies.
The issue for Congress is whether to approve, reject, or modify the Navy’s acquisition strategies The issue for Congress is whether to approve, reject, or modify the Navy’s acquisition strategies
and 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~~substantially affect Navy capabilities and funding requirements and the shipbuilding and UV affect Navy capabilities and funding requirements and the shipbuilding and UV
industrial bases. industrial bases.
In addition to the large UVs covered in this report, the Navy also wants to develop and procure In addition to the large UVs covered in this report, the Navy also wants to develop and procure
~~smal er~~smaller USVs and UUVs, USVs and UUVs, ~~as wel~~ as well as unmanned aerial vehicles (UAVs) of various sizes. Other as unmanned aerial vehicles (UAVs) of various sizes. Other
U.S. military services are developing, procuring, and operating their own types of UVs. Separate U.S. military services are developing, procuring, and operating their own types of UVs. Separate
CRS reports address some of these efforts.1 CRS reports address some of these efforts.1
Background
Navy USVs and UUVs in General
UVs in the Navy
UVs are one of several new capabilities—along with directed-energy weapons, hypersonic UVs are one of several new capabilities—along with directed-energy weapons, hypersonic
weapons, artificial weapons, artificial ~~intel igence,~~ intelligence, cyber capabilities, and quantum technologies—that the Navy and cyber capabilities, and quantum technologies—that the Navy and
other U.S. military services are pursuing to meet emerging military other U.S. military services are pursuing to meet emerging military ~~chal enges~~challenges, particularly from , particularly from
China.2 UVs can be equipped with sensors, weapons, or other payloads, and can be operated China.2 UVs can be equipped with sensors, weapons, or other payloads, and can be operated
remotely, semi-autonomously, or (with technological advancements) autonomously. They can be remotely, semi-autonomously, or (with technological advancements) autonomously. They can be
~~individual y~~ individually less expensive to procure than manned ships and aircraft because their designs do not less expensive to procure than manned ships and aircraft because their designs do not
need to incorporate spaces and support equipment for onboard human operators. UVs can be need to incorporate spaces and support equipment for onboard human operators. UVs can be
particularly suitable for long-duration missions that might tax the physical endurance of onboard particularly suitable for long-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 human operators, or missions that pose a high risk of injury, death, or capture of onboard human
operators—so-operators—so-~~cal ed~~called “three D” missions, meaning missions that are dull, dirty, or dangerous.3 “three D” missions, meaning missions that are dull, dirty, or dangerous.3

~~1 See, for example, CRS~~ 1 See, for example, CRS Report R45519, Report R45519, The Army’s Optionally Manned Fighting Vehicle (OMFV) Program:
Background and Issues for Congress, by Andrew, by Andrew ~~Feickert~~ Feickert, and CRS, and CRS In Focus IF11150, In Focus IF11150, Defense ~~Prim er~~Primer: U.S. Policy on
Lethal ~~Autonom ous Weapon System s~~Autonomous Weapon Systems, by Kelley M. Sayler. , by Kelley M. Sayler.
2 For a CRS 2 For a CRS report on advanced military technologies, see CRSreport on advanced military technologies, see CRS In Focus IF11105, In Focus IF11105, Defense Primer: Emerging
Technologies, by Kelley M. Sayler. , by Kelley M. Sayler.
3 See,3 See, for example, Ann Diab, “for example, Ann Diab, “ Drones Perform the Dull, Dirty, or Dangerous Work,” Drones Perform the Dull, Dirty, or Dangerous Work,” ~~T ech~~Tech.co, November 12, 2014; .co, November 12, 2014;
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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.
Even so, some observers have Even so, some observers have ~~occasional y~~occasionally expressed dissatisfaction with what they view as the expressed dissatisfaction with what they view as the
Navy’s slow pace in transitioning UV development efforts into programs for procuring UVs in Navy’s slow pace in transitioning UV development efforts into programs for procuring UVs in
quantity and integrating them into the operational fleet. 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., On March 16, 2021, the Department of the Navy released a “campaign framework” (i.e., ~~overal~~
overall 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.4 integrating them into U.S. naval operations.4
Navy USV and UUV Categories
As shown i As shown in Figure 1 andand Figure 2, the Navy organizes its USV acquisition programs into four , the Navy organizes its USV acquisition programs into four
size-based categories that the Navy size-based categories that the Navy ~~cal s~~calls large, medium, large, medium, ~~smal~~ small, and very , and very ~~smal~~ small, and its UUV , and its UUV
acquisition programs similarly into four size-based categories that the Navy acquisition programs similarly into four size-based categories that the Navy ~~cal s~~calls extra-large, extra-large,
large, medium, and large, medium, and ~~smal~~ small. The large UVs discussed in this CRS report . The large UVs discussed in this CRS report ~~fal~~ fall into the top two USV into the top two USV
categories icategories in Figure 1 and the top UUVand the top UUV category icategory in Figure 2.
The The ~~smal er~~smaller UVs shown in the other categories UVs shown in the other categories ofof Figure 1 andand Figure 2, , ~~which~~which are not covered are not covered
in this report, can be deployed from manned Navy ships and submarines to extend the operational in this report, can be deployed from manned Navy ships and submarines to extend the operational
reach of those ships and submarines. The large UVs covered in this CRS report, in contrast, are reach of those ships and submarines. The large UVs covered in this CRS report, in contrast, are
more likely to be deployed directly from pier to perform missions that might otherwise be more likely to be deployed directly from pier to perform missions that might otherwise be
assigned to manned ships and submarines. assigned to manned ships and submarines.

Bonnie Robinson, “Bonnie Robinson, “ Dull, Dirty, Dangerous Mission? SendDull, Dirty, Dangerous Mission? Send in the Robot Vehicle,” U.S.in the Robot Vehicle,” U.S. Army, AugustArmy, August 20, 2015; 20, 2015;
Bernard Marr, “Bernard Marr, “ ~~T he~~The 4 Ds Of Robotization: Dull, Dirty, Dangerous And 4 Ds Of Robotization: Dull, Dirty, Dangerous And Dear,” Dear,” Forbes, October 16, 2017. , October 16, 2017.
4 Department of the Navy, 4 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, “Megan Eckstein, “ Navy, Marines Unveil How Navy, Marines Unveil How ~~T hey~~They Will Buy and Will Buy and Operate Future Pilotless Aircraft and Crewless Operate Future Pilotless Aircraft and Crewless
Ships,”Ships,” USNI News,, March 16, 2021; Gina Harkins, “March 16, 2021; Gina Harkins, “ Why You ShouldWhy You Should ~~T rust~~ Trust Drone Ships Drone Ships and Unmanned and Unmanned ~~T ech~~Tech, ,
According to the Navy,” According to the Navy,” Military.com , March 16, 2021; Stew Magnuson, “, March 16, 2021; Stew Magnuson, “ Just In: Navy, Marine Corps Unmanned Just In: Navy, Marine Corps Unmanned
Framework CallsFramework Calls For ‘Capabilities’ Over Platforms,” For ‘Capabilities’ Over Platforms,” National Defense, March 16, 2021; Seapower Staff, “, March 16, 2021; Seapower Staff, “ Navy, Navy,
Marine Corps ReleaseMarine Corps Release Unmanned Campaign PlanUnmanned Campaign Plan ,” ,” Seapower, March 16, 2021; Jordan Wolman, “, March 16, 2021; Jordan Wolman, “ Looking to the 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 Slide 3 of briefing by Captain Pete ~~Smal , Program~~ Small, Program Manager, Unmanned Maritime SystemsManager, Unmanned Maritime Systems (PMS 406), (PMS 406),
entitled “Unmanned Maritimeentitled “Unmanned Maritime ~~Systems~~ Systems Update,” January 15, 2019, accessed May 22, 2019, at Update,” January 15, 2019, accessed May 22, 2019, at
https://www.navsea.navy.mil/Portals/103/Documents/Exhibits/SNA2019/UnmannedMaritimeSys-https://www.navsea.navy.mil/Portals/103/Documents/Exhibits/SNA2019/UnmannedMaritimeSys-~~Smal~~ Small.pdf?ver=.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 Slide 2 of briefing by Captain Pete ~~Smal , Program~~ Small, Program Manager, Unmanned Maritime SystemsManager, Unmanned Maritime Systems (PMS 406), (PMS 406),
entitled “Unmanned Maritimeentitled “Unmanned Maritime ~~Systems~~ Systems Update,” January 15, 2019, accessed May 22, 2019, at Update,” January 15, 2019, accessed May 22, 2019, at
https://www.navsea.navy.mil/Portals/103/Documents/Exhibits/SNA2019/UnmannedMaritimeSys-https://www.navsea.navy.mil/Portals/103/Documents/Exhibits/SNA2019/UnmannedMaritimeSys-~~Smal~~ Small.pdf?ver=.pdf?ver=
2019-01-15-165105-297. 2019-01-15-165105-297.
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Navy Large Unmanned Surface and Undersea Vehicles

Large UVs and Navy Ship Count
Because the large UVs covered in this report can be deployed directly from pier to perform 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
raised a question as to whether the large UVs covered in this report should be included in the top-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. level count of the number of ships in the Navy.
Part of More Distributed Navy Fleet Architecture
The Navy and DOD have been working since 2019 to develop a new Navy force-level goal to The Navy and DOD have been working since 2019 to develop a new Navy force-level goal to
replace the Navy’s current 355-ship force-level goal. This new Navy force-level goal is expected replace the Navy’s current 355-ship force-level goal. This new Navy force-level goal is expected
to introduce a change in fleet architecture, meaning basic the types of ships that make up the to introduce a change in fleet architecture, meaning basic the types of ships that make up the
Navy and how these ships are used in combination with one another to perform Navy missions. Navy and how these ships are used in combination with one another to perform Navy missions.
This new fleet architecture is expected to be more distributed than the fleet architecture reflected This new fleet architecture is expected to be more distributed than the fleet architecture reflected
in the 355-ship goal or previous Navy force-level goals. In particular, the new fleet architecture is in the 355-ship goal or previous Navy force-level goals. In particular, the new fleet architecture is
expected to feature expected to feature
 a  a ~~smal er~~smaller proportion of larger ships (such as large-deck aircraft carriers, cruisers, proportion of larger ships (such as large-deck aircraft carriers, cruisers,
destroyers, large amphibious ships, and large resupply ships), destroyers, large amphibious ships, and large resupply ships),
 a larger proportion of  a larger proportion of ~~smal er~~smaller ships (such as frigates, corvettes, ships (such as frigates, corvettes, ~~smal er~~smaller
amphibious ships, and amphibious ships, and ~~smal er~~smaller resupply ships), and resupply ships), and
 a new third tier of large UVs.  a new third tier of large UVs.
Navy and DOD leaders believe that shifting to a more distributed fleet architecture is Navy and DOD leaders believe that shifting to a more distributed fleet architecture is
  operationally necessary, to respond effectively to the improving maritime anti-, to respond effectively to the improving maritime anti-
access/area-denial (A2/AD) capabilities of other countries, particularly China;5 access/area-denial (A2/AD) capabilities of other countries, particularly China;5
  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 than the current fleet architecture for generating —no more expensive than the current fleet architecture for generating
a given amount of naval capability. a given amount of naval capability.
Shifting to a more distributed force architecture, Navy and Marine Corps officials have Shifting to a more distributed force architecture, Navy and Marine Corps officials have
suggested, suggested, ~~wil~~ will support the implementation of the Navy and Marine Corps’ new overarching support the implementation of the Navy and Marine Corps’ new overarching

~~5 See,~~ 5 See, for example, David B. Larter, “With China Gunning for Aircraft Carriers, USfor example, David B. Larter, “With China Gunning for Aircraft Carriers, US Navy SaysNavy Says It Must Change HowIt Must Change How It It
Fights,” Fights,” Defense News,, December 6, 2019; Arthur H. Barber, “December 6, 2019; Arthur H. Barber, “Redesign ~~Redesign~~ the Fleet,” the Fleet,” U.S. Naval Institute Proceedings, ,
January 2019. Some observers have long urgedJanuary 2019. Some observers have long urged the Navy to shift to a more distributed fleet architecture, on the grounds 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 individuallyof individually larger and more expensive surface ships—islarger and more expensive surface ships—is increasingly vulnerable to attack by the improving A2/AD increasingly vulnerable to attack by the improving A2/AD
capabilities (particularly anti-ship missiles and their supporting detection and targeting systems) capabilities (particularly anti-ship missiles and their supporting detection and targeting systems) ~~o f~~of potential potential
adversaries, particularly China. Shifting to a more distributedadversaries, particularly China. Shifting to a more distributed architecture, these observers have argued,architecture, these observers have argued, would would
• •
complicate an adversary’s targeting challenge by presenting the adversary with a larger number complicate an adversary’s targeting challenge by presenting the adversary with a larger number of Navy units of Navy units
to detect, identify, and track; to detect, identify, and track;
• •
reduce reduce the loss in aggregatethe loss in aggregate Navy capability that wouldNavy capability that would result from the destruction of an individualresult from the destruction of an individual Navy Navy
platform; platform;
• •
give U.S. give U.S. ~~leaders~~ leaders the option of deploying USVsthe option of deploying USVs ~~and UUVs~~ and UUVs in wartime to sea locations that would be in wartime to sea locations that would be
tactically advantageous but too risky for manned ships; and tactically advantageous but too risky for manned ships; and
• •
increase the modularity and reconfigurability of the fleet for adapting to changing mission needs. increase the modularity and reconfigurability of the fleet for adapting to changing mission needs.
For more on China’s maritime A2/AD capabilities, see For more on China’s maritime A2/AD capabilities, see ~~CRS~~ CRS Report RL33153, Report RL33153, China Naval Modernization:
~~Im plications~~Implications for U.S. Navy Capabilities—Background and Issues for Congress, by Ronald O'Rourke. , by Ronald O'Rourke.
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operational concept, operational concept, ~~cal ed~~called Distributed Maritime Operations (DMO), and a supporting Marine Distributed Maritime Operations (DMO), and a supporting Marine
Corps operational concept Corps operational concept ~~cal ed~~called Expeditionary Advanced Base Operations (EABO). While Navy Expeditionary Advanced Base Operations (EABO). While Navy
officials have provided few details in public about DMO,6 the Navy did state in its FY2021 officials have provided few details in public about DMO,6 the Navy did state in its FY2021
budget submission thatbudget submission that
MUSV and LUSV are key enablers of the Navy’s Distributed Maritime Operations (DMO) MUSV and LUSV are key enablers of the Navy’s Distributed Maritime Operations (DMO)
concept, which includes being able to forward deploy and team with individual manned concept, which includes being able to forward deploy and team with individual manned
combatants or augment battle groups. Fielding of MUSV and LUSV will provide the Navy combatants or augment battle groups. Fielding of MUSV and LUSV will provide the Navy
increased capability and necessary capacity at lower procurement and sustainment costs, increased capability and necessary capacity at lower procurement and sustainment costs,
reducedreduced ~~risk to sailors and increased readiness by offloading missions~~ risk to sailors and increased readiness by offloading missions from manned from manned
combatants.7 combatants.7
On December 9, 2020, the Navy released a long-range Navy shipbuilding document that On December 9, 2020, the Navy released a long-range Navy shipbuilding document that
presented the Trump Administration’s emerging successor to the Navy’s current 355-ship force-presented the Trump Administration’s emerging successor to the Navy’s current 355-ship force-
level goal, which level goal, which ~~cal s~~calls for a fleet of 355 manned ships. The document for a fleet of 355 manned ships. The document ~~cal ed~~called for a Navy with a for a Navy with a
more distributed fleet architecture, including 382 to 446 manned ships, 119 to 166 LUSVs and more distributed fleet architecture, including 382 to 446 manned ships, 119 to 166 LUSVs and
MUSVs, and 24 to 76 XLUUVs.8 MUSVs, and 24 to 76 XLUUVs.8
On June 17, 2021, the Navy released a long-range Navy shipbuilding document that presents the On June 17, 2021, the Navy released a long-range Navy shipbuilding document that presents the
Biden Administration’s emerging successor to the Navy’s current 355-ship force-level goal. The Biden Administration’s emerging successor to the Navy’s current 355-ship force-level goal. The
document document ~~cal s~~calls for a Navy with a more distributed fleet architecture, including 321 to 372 for a Navy with a more distributed fleet architecture, including 321 to 372
manned ships, 59 to 89 LUSVs and MUSVs, and 24 to 76 XLUUVs.9 manned ships, 59 to 89 LUSVs and MUSVs, and 24 to 76 XLUUVs.9
Acquisition Strategies and Enabling Technologies
The LUSV and MUSV The LUSV and MUSV programs are building on USV development work done by the programs are building on USV development work done by the
Department of Defense’s (DOD’s) Strategic Capabilities Office (SCO). SCO’s effort to develop Department of Defense’s (DOD’s) Strategic Capabilities Office (SCO). SCO’s effort to develop
USVs is USVs is ~~cal ed~~called Ghost Fleet, and its LUSV development effort within Ghost Fleet is Ghost Fleet, and its LUSV development effort within Ghost Fleet is ~~cal ed~~
called Overlord. Overlord.
As shown i As shown in Figure 3, ~~Navy~~ Navy in 2019 identified five key enabling groups of technologies for its in 2019 identified five key enabling groups of technologies for its
USV and UUVUSV and UUV programs.10 Given limitations on underwater communications (most radio-programs.10 Given limitations on underwater communications (most radio-

~~6 T hen~~ 6 Then-Chief of Naval Operations Admiral John Richardson, in explaining DMO, stated in December 2018 that “Our -Chief of Naval Operations Admiral John Richardson, in explaining DMO, stated in December 2018 that “Our
fundamental force element right now in many instances is the [individual]fundamental force element right now in many instances is the [individual] carrier strike group. We’re going to scale up carrier strike group. We’re going to scale up
so our fundamental force element for fighting is at the fleet[so our fundamental force element for fighting is at the fleet[ -wide] level, and the [individual] strike groups plug-wide] level, and the [individual] strike groups plug into into
those [larger] numberedthose [larger] numbered fleets. And they willfleets. And they will be, the strike groups and the fleet together, will be operating in a be, the strike groups and the fleet together, will be operating in a
distributeddistributed maritime operations way.” (Chief of Naval Operations Admiral John Richardson, as quotedmaritime operations way.” (Chief of Naval Operations Admiral John Richardson, as quoted in Megan in Megan
Eckstein, “Eckstein, “ Navy Planning for Gray-Zone Conflict; Finalizing Distributed Maritime Operations for High-End Fight,” Navy Planning for Gray-Zone Conflict; Finalizing Distributed Maritime Operations for High-End Fight,”
USNI News,, December 19, 2018.) December 19, 2018.)
7 Department of Defense Fiscal Year (FY) 2021 Budget Estimates, Navy Justification Book Volume7 Department of Defense Fiscal Year (FY) 2021 Budget Estimates, Navy Justification Book Volume 2 of 5, Research, 2 of 5, Research,
Development, Development, ~~T est~~Test & Evaluation, February 2020, PDF page 90 of 1,538. & Evaluation, February 2020, PDF page 90 of 1,538. ~~T he~~The statement also appears on PDF page 324 statement also appears on PDF page 324
of 1,538. For more on the more distributed force architecture, DMO, and EABO, seeof 1,538. For more on the more distributed force architecture, DMO, and EABO, see ~~CRS~~ CRS Report RL32665, Report RL32665, Navy
Force Structure and Shipbuilding Plans: ~~Backg round~~Background and Issues for Congress, by Ronald, by Ronald O'Rourke. SeeO'Rourke. See also Kevin also Kevin
Eyer and Steve McJessy, “Eyer and Steve McJessy, “ Operationalizing Distributed Maritime Operations,” Center for International Maritime Operationalizing Distributed Maritime Operations,” Center for International Maritime
Security (CIMSEC),Security (CIMSEC), March 5, 2019; Christopher H. Popa et al., March 5, 2019; Christopher H. Popa et al., Distributed ~~Maritim e~~Maritime Operations and ~~Unm anned~~
~~System s Tactical Em ploym ent~~Unmanned Systems Tactical Employment, Naval Postgraduate School, June 2018, 171 pp. (Systems Engineering Capstone Report); , Naval Postgraduate School, June 2018, 171 pp. (Systems Engineering Capstone Report);
Lyla Englehorn, Lyla Englehorn, Distributed ~~Maritim e~~Maritime Operations (DMO) Warfare Innovation Continuum (WIC) Workshop ~~Septem ber~~September
2017 After Action Report, Naval Postgraduate School, December 2017, 99 pp. , Naval Postgraduate School, December 2017, 99 pp.
8 U.S.8 U.S. Navy, Navy, Report to Congress on the Annual Long-Range Plan for Construction of Naval Vessels,, December 2020, December 2020,
23 pp. 23 pp.
9 U.S. 9 U.S. Navy, Navy, Report to Congress on the Annual Long-Range Plan for Construction of Naval Vessels for Fiscal Year
2022, June 2021, 16 pp. , June 2021, 16 pp.
10 For additional discussion 10 For additional discussion of some of the enabling technologies shown of some of the enabling technologies shown inin Figure 3, see Pete Small, “Empowering the , see Pete Small, “Empowering the
Unmanned Maritime Revolution,” Undersea Warfare, Spring 2019: 12Unmanned Maritime Revolution,” Undersea Warfare, Spring 2019: 12 -13. -13.
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frequency electromagnetic waves do not travel far underwater), technologies for autonomous frequency electromagnetic waves do not travel far underwater), technologies for autonomous
operations (such as artificial operations (such as artificial ~~intel igence) wil~~ intelligence) will be particularly important for the XLUUVbe particularly important for the XLUUV program program
(and other UUV(and other UUV programs).11 programs).11
Figure 3. Enabling Technologies for USVs and UUVs

Source: Slide 4 of briefing by Captain Pete Slide 4 of briefing by Captain Pete ~~Smal , Program~~ Small, Program Manager, Unmanned Maritime SystemsManager, Unmanned Maritime Systems (PMS 406), (PMS 406),
entitled “Unmanned Maritimeentitled “Unmanned Maritime ~~Systems~~ Systems Update,” January 15, 2019, accessed May 22, 2019, at Update,” January 15, 2019, accessed May 22, 2019, at
https://www.navsea.navy.mil/Portals/103/Documents/Exhibits/SNA2019/UnmannedMaritimeSys-https://www.navsea.navy.mil/Portals/103/Documents/Exhibits/SNA2019/UnmannedMaritimeSys-~~Smal~~ Small.pdf?ver=.pdf?ver=
2019-01-15-165105-297. 2019-01-15-165105-297.
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 was concepts for LUSVs and MUSVs. The squadron was ~~initial y~~initially to consist of a Zumwalt (DDG- to consist of a Zumwalt (DDG-
1000) class destroyer and one Sea Hunter prototype medium displacement USV1000) class destroyer and one Sea Hunter prototype medium displacement USV (Figure 4). A . A
second Sea Hunter prototype was reportedly to be added around the end of FY2020, and LUSVs second Sea Hunter prototype was reportedly to be added around the end of FY2020, and LUSVs
and MUSVs would then be added as they become available.12 and MUSVs would then be added as they become available.12

11 For more on the use11 For more on the use of artificial intelligence in defense programs, see CRSof artificial intelligence in defense programs, see CRS Report R45178, Report R45178, Artificial Intelligence
and National Security, by Kelley M. Sayler. , by Kelley M. Sayler.
12 See,12 See, for example, Megan Eckstein, “Navy Stands Up Surfacefor example, Megan Eckstein, “Navy Stands Up Surface Development SquadronDevelopment Squadron for DDG-1000, Unmanned for DDG-1000, Unmanned
Experimentation,” Experimentation,” USNI News, May 22, 2019; David B., May 22, 2019; David B. Larter, “With Billions Planned in Funding,Larter, “With Billions Planned in Funding, the USthe US Navy Navy
Charts Its Unmanned Future,” Charts Its Unmanned Future,” Defense News,, May 6, 2019. See also Michael Fabey, “USN SeeksMay 6, 2019. See also Michael Fabey, “USN Seeks Path for Unmanned Path for Unmanned
Systems Operational Concepts,” Systems Operational Concepts,” Jane’s Navy International, May 16, 2019. , May 16, 2019.
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Figure 4. Sea Hunter Prototype Medium Displacement USV

Source: Photograph credited to U.S. Navy accompanying John Grady, “Panel: Unmanned Surface VesselsPhotograph credited to U.S. Navy accompanying John Grady, “Panel: Unmanned Surface Vessels ~~Wil~~ Wil be be
Significant Part of Future U.S. Fleet,”Significant Part of Future U.S. Fleet,” USNI News, April, April 15, 2019. 15, 2019.
LUSV, MUSV, and LXUUV Programs in Brief
Navy Vision and Schedule for USVs and UUVs
Figure 5 andand Figure 6 show the Navy’s vision and schedule as of March 2021 for building, show the Navy’s vision and schedule as of March 2021 for building,
testing, and conducting fleet experiments with USVs and UUVs, including the LUSV, the MUSV, testing, and conducting fleet experiments with USVs and UUVs, including the LUSV, the MUSV,
and the XLUUV,and the XLUUV, along with supporting efforts such as the Overlord and Sea Hunter prototype along with supporting efforts such as the Overlord and Sea Hunter prototype
USVs, as USVs, as ~~wel as smal er~~well as smaller USVs and UUVs USVs and UUVs that are not covered in this report. Under the Navy’s that are not covered in this report. Under the Navy’s
proposed FY2022 budget, the schedules shown in these two figures may have changed, proposed FY2022 budget, the schedules shown in these two figures may have changed,
particularly so as to provide more time for maturing technologies prior to initiating larger-scale particularly so as to provide more time for maturing technologies prior to initiating larger-scale
procurement of USVs and UUVs. procurement of USVs and UUVs.
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Figure 5. Navy USV Systems Vision as of March 2021

Source: Captain Pete Captain Pete ~~Smal ,~~ Small, “PMS 406 Unmanned Maritime“PMS 406 Unmanned Maritime Systems,”Systems,” briefing at NDIA Undersea Warfare briefing at NDIA Undersea Warfare
Conference, March 24, 2021, slideConference, March 24, 2021, slide 3. 3.
Notes: GFE means government-furnished equipment, meaning equipment that the government wil GFE means government-furnished equipment, meaning equipment that the government wil provide to provide to
the firm that is building the USV, for incorporation into the USV. the firm that is building the USV, for incorporation into the USV.
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Figure 6. Navy UUV Systems Vision as of March 2021

Source: Captain Pete Captain Pete ~~Smal ,~~ Small, “PMS 406 Unmanned Maritime“PMS 406 Unmanned Maritime Systems,”Systems,” briefing at NDIA Undersea Warfare briefing at NDIA Undersea Warfare
Conference, March 24, 2021, slideConference, March 24, 2021, slide 4. 4.
Notes: DDS is dry deck shelter, DDS is dry deck shelter, which is a module that can be attached to the top surface of a which is a module that can be attached to the top surface of a ~~submarin e~~ submarine for for
the purpose of carrying a special payload. PHS is payload handling system.the purpose of carrying a special payload. PHS is payload handling system. IPOE is IPOE is ~~intel igence~~ intelligence preparation of the preparation of the
operational environment.operational environment. MCM is mine countermeasures.MCM is mine countermeasures. TTL&R is torpedo tube launch and recovery.TTL&R is torpedo tube launch and recovery. INC is INC is
increment (i.e.,increment (i.e., version).version). DIU is DefenseDIU is Defense Innovation Unit, which is a DOD organization.Innovation Unit, which is a DOD organization. NSW is naval special NSW is naval special
warfare. 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 corvette (i.e., a displacements of 1,000 tons to 2,000 tons, which would make them the size of a corvette (i.e., a
ship larger than a patrol craft and ship larger than a patrol craft and ~~smal er~~smaller than a frigate) than a frigate). Figure 7 shows a detail from a Navy shows a detail from a Navy
briefing slide showing images of prototype LUSVs and silhouettes of a notional LUSV and a briefing slide showing images of prototype LUSVs and silhouettes of a notional LUSV and a
notional MUSVnotional MUSV.. Figure 8 aand Figure 9 show ships that have been used as LUSV prototypes. In show ships that have been used as LUSV prototypes. In
unclassified presentations on the program, the Navy has used images of offshore support ships unclassified presentations on the program, the Navy has used images of offshore support ships
used by the oil and gas industry to used by the oil and gas industry to ~~il ustrate~~illustrate the kinds of ships that might be used as the basis for the kinds of ships that might be used as the basis for
~~LUSVs.13~~

~~13 Sam~~ LUSVs.13 13 Sam LaGrone, “Navy Wants 10-Ship Unmanned ‘Ghost Fleet’ to Supplement Manned Force,” LaGrone, “Navy Wants 10-Ship Unmanned ‘Ghost Fleet’ to Supplement Manned Force,” USNI News,, March March
13, 2019. 13, 2019.
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Figure 7. Prototype and Notional LUSVs and MUSVs

Source: DetailDetail from Navy briefing slidefrom Navy briefing slide entitled Unmanned Maritimeentitled Unmanned Maritime Systems,Systems, slide 5 in a Navy briefing entitled slide 5 in a Navy briefing entitled
“Designing & Building the Surface Fleet:“Designing & Building the Surface Fleet: Unmanned and Unmanned and ~~Smal~~ Small Combatants,” by Rear AdmiralCombatants,” by Rear Admiral Casey Moton at a Casey Moton at a
June 20, 2019, conference of the AmericanJune 20, 2019, conference of the American Society of Naval Engineers (ASNE). Society of Naval Engineers (ASNE).
Figure 8. LUSV Prototype

Source: Cropped versionCropped version of photograph accompanying of photograph accompanying ~~Mal ory~~Mallory Shelbourne, Shelbourne, “6 Companies Awarded Contracts “6 Companies Awarded Contracts
to Start Workto Start Work on Large Unmanned Surface Vehicle,”on Large Unmanned Surface Vehicle,” USNI News, September, September 4, 2020. The caption to the 4, 2020. The caption to the
photograph states in part: “A Ghost Fleet Overlordphotograph states in part: “A Ghost Fleet Overlord test vesseltest vessel takes part in a capstone demonstration during the takes part in a capstone demonstration during the
conclusion of Phase I of the program in September.”conclusion of Phase I of the program in September.” The photo is credited to the U.S. Navy. The photo is credited to the U.S. Navy.
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Figure 9. LUSV prototype

Source: Cropped versionCropped version of photograph accompanying of photograph accompanying ~~Mal ory~~Mallory Shelbourne, Shelbourne, “6 Companies Awarded Contracts “6 Companies Awarded Contracts
to Start Workto Start Work on Large Unmanned Surface Vehicle,”on Large Unmanned Surface Vehicle,” USNI News, September, September 4, 2020. The caption to the 4, 2020. The caption to the
photograph states in part: “A Ghost Fleet Overlordphotograph states in part: “A Ghost Fleet Overlord test vesseltest vessel takes part in a capstone demonstration during the takes part in a capstone demonstration during the
conclusion of Phase I of the program in September.”conclusion of Phase I of the program in September.” The photo is credited to the U.S. Navy. The photo is credited to the U.S. Navy.
The Navy wants LUSVs to be low-cost, high-endurance, reconfigurable ships based on 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—commercial ship designs, with ample capacity for carrying various modular payloads—
particularly anti-surface warfare (ASuW) and strike payloads, meaning particularly anti-surface warfare (ASuW) and strike payloads, meaning ~~principal y~~principally anti-ship and anti-ship and
land-attack missiles.14 Although the Navy testified in June 2021 that each LUSV is to have 64 land-attack missiles.14 Although the Navy testified in June 2021 that each LUSV is to have 64
vertical launch system (VLS) missile-launching tubes,15 the Navy subsequently said this was a vertical launch system (VLS) missile-launching tubes,15 the Navy subsequently said this was a
misstatement, and that the correct figure is 16 to 32 VLS misstatement, and that the correct figure is 16 to 32 VLS ~~cel s~~cells.16 .16
The Navy wants LUSVs to be capable of operating with human operators in the loop,17 or semi- The Navy wants LUSVs to be capable of operating with human operators in the loop,17 or semi-
autonomously (with human operators on the loop),18 or fully autonomously, and to be capable of autonomously (with human operators on the loop),18 or fully autonomously, and to be capable of
operating either independently or in conjunction with manned surface combatants. Although operating either independently or in conjunction with manned surface combatants. Although
referred to as UVs, LUSVs might be more accurately described as referred to as UVs, LUSVs might be more accurately described as ~~optional y~~optionally or lightly or lightly manned manned
ships, because they might sometimes have a few onboard crew members, particularly in the ships, because they might sometimes have a few onboard crew members, particularly in the
nearer term as the Navy works out LUSV enabling technologies and operational concepts.19 nearer term as the Navy works out LUSV enabling technologies and operational concepts.19
LUSVs are to feature both built-in capabilitiesLUSVs are to feature both built-in capabilities and an abilityand an ability to accept modular payloads, and are to accept modular payloads, and are
to use existing Navy sensors and weapon launchers. The Navy states that to use existing Navy sensors and weapon launchers. The Navy states that

~~14 T he~~ 14 The Navy states that the LUSV “provides distributed fires” and will Navy states that the LUSV “provides distributed fires” and will ~~include~~ include an “offensive missile capability.” See an “offensive missile capability.” See
slideslide 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.
15 See 15 See Rich Abott, “Rich Abott, “ Officials Defend Cost Balancing In CruiserOfficials Defend Cost Balancing In Cruiser Retirement Plans,” Retirement Plans,” Defense Daily, June 17, 2021; , June 17, 2021;
Richard R.Richard R. Burgess,Burgess, “ “Kilby: LUSV’sKilby: LUSV’s ~~Missile Cells Would~~ Missile Cells Would Replace CellsReplace Cells Lost with Decommissioned Cruisers,” Lost with Decommissioned Cruisers,”
Seapower, Jnue 17, 2021. , Jnue 17, 2021.
16 Source: 16 Source: Navy FY2022 program briefing on LUSVNavy FY2022 program briefing on LUSV ~~and MUSV~~ and MUSV programs for CRSprograms for CRS and CBO,and CBO, ~~July 15~~ July 14, 2021., 2021.
17 17 ~~T he~~The Navy states that having the operator in the loop can be understood as referring to continuous or near Navy states that having the operator in the loop can be understood as referring to continuous or near -continuous -continuous
observation and/or control of the UV by the operator. (Source: Navy email to CRSobservation and/or control of the UV by the operator. (Source: Navy email to CRS dated June 4, 2019.)dated June 4, 2019.)
18 18 ~~T he~~The Navy states that having the operator on the loop can be understood as referring to a UV Navy states that having the operator on the loop can be understood as referring to a UV that is operating semi-that is operating semi-
autonomously, with the UVautonomously, with the UV controlling its own actions much of the time, but with a human operator potentially 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 fromintervening from time to time in response to either a prompt from the UV or data sent from the UV or other sources. the UV or data sent from the UV or other sources.
(Source:(Source: Navy email to CRSNavy email to CRS dated June 4, 2019.) dated June 4, 2019.)
19 See,19 See, for example, David B. Larter, “US Navy Looks to Ease into Using Unmanned Robot Shipsfor example, David B. Larter, “US Navy Looks to Ease into Using Unmanned Robot Ships with a Manned with a Manned
Crew,”Crew,” Defense News,, January 29, 2019. January 29, 2019.
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The Navy’s LUSV builds upon work funded by DoD’s Strategic Capabilities Office (SCO) The Navy’s LUSV builds upon work funded by DoD’s Strategic Capabilities Office (SCO)
andand ~~experimentation executed by the Navy USVs in Project Overlord. LUSV will be~~ experimentation executed by the Navy USVs in Project Overlord. LUSV will be a a
high-endurance vessel based on commercial specifications, capable of weekshigh-endurance vessel based on commercial specifications, capable of weeks -long -long
deployments and trans-oceanic transits. With a large payload capacity, the LUSV will be 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 designed to conduct a variety of warfare operations initially in conjunction with manned
surface combatants while under the positive control of a man-in-the-loop for employment surface combatants while under the positive control of a man-in-the-loop for employment
ofof ~~weapons systems. The Navy is taking an iterative, systems engineering approach~~ weapons systems. The Navy is taking an iterative, systems engineering approach to to
obtaining this technology and has designed an integration and experimentation plan that obtaining this technology and has designed an integration and experimentation plan that
will validate high reliability mechanical and electrical systems, autonomous navigation and will validate high reliability mechanical and electrical systems, autonomous navigation and
maneuvering, integration of combat system, and platform command and control maneuvering, integration of combat system, and platform command and control
capabilities prior to employment opportunities. capabilities prior to employment opportunities.
LUSV LUSV Design Studies contracts were awarded in September 2020 to six Industry teams to Design Studies contracts were awarded in September 2020 to six Industry teams to
provideprovide ~~robust collaboration with government and industry to assist in maturation of~~
~~platform specifications, and ensure achievable technical requirements are in place for~~ robust collaboration with government and industry to assist in maturation of platform specifications, and ensure achievable technical requirements are in place for a a
follow on development contract. Both Industry and the Navy are using these collaborativefollow 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~~
interactions to significantly advance the knowledge base that will feed into the LUSV program…. program….
The Navy has benefited through its prototyping and experimenting with Sea Hunter and The Navy has benefited through its prototyping and experimenting with Sea Hunter and
Overlord unmanned surface vessel prototypes accumulating over 3,100 hours of Overlord unmanned surface vessel prototypes accumulating over 3,100 hours of
autonomousautonomous ~~operations to include teaming with other manned ships. The~~ operations to include teaming with other manned ships. The Navy will Navy will
continue experimentation and reliability demonstration efforts in FY 2021 and FY 2022 on continue experimentation and reliability demonstration efforts in FY 2021 and FY 2022 on
the two SCO-funded Overlord vessels as ownership shifts to the Navy. The Navy is also the two SCO-funded Overlord vessels as ownership shifts to the Navy. The Navy is also
buildingbuilding ~~two additional Overlord prototypes that will deliver~~ two additional Overlord prototypes that will deliver in FY 2022 to support in FY 2022 to support
continuedcontinued experimentation,experimentation, ~~and future mission CONOPS. The Navy is evaluating~~ and future mission CONOPS. The Navy is evaluating other other
DMO applications to include logistics supply and refueling, Marine Corps expeditionary DMO applications to include logistics supply and refueling, Marine Corps expeditionary
options, and enhancements to other surface platform missions. As part of this evaluation, options, and enhancements to other surface platform missions. As part of this evaluation,
the Navy is collaborating with Military Sealift Command and the Marine Corps to modify the Navy is collaborating with Military Sealift Command and the Marine Corps to modify
a T-EPF [expeditionarya T-EPF [expeditionary ~~fast~~ fast transport ship]transport ship] with autonomywith autonomy to gain more autonomyto gain more autonomy
knowledge and reliability on a class of ship equipped with V-22 [tilt-rotor aircraft] landing knowledge and reliability on a class of ship equipped with V-22 [tilt-rotor aircraft] landing
capability, a large logistic and personnel size, weight and power capability, and the ability capability, a large logistic and personnel size, weight and power capability, and the ability
to operate at high speeds.20 to operate at high speeds.20
In marking up the Navy’s proposed FY2020 and FY2021 budgets, the congressional defense In marking up the Navy’s proposed FY2020 and FY2021 budgets, the congressional defense
committees expressed concerns over whether the Navy’s acquisition strategies provided enough committees expressed concerns over whether the Navy’s acquisition strategies provided enough
time to adequately develop concepts of operations and key technologies for these large UVs, time to adequately develop concepts of operations and key technologies for these large UVs,
particularly the LUSV,particularly the LUSV, and included legislativeand included legislative provisions intended to address these concerns.21provisions intended to address these concerns.21
In response to these markups, the Navy has restructured its acquisition strategy for the LUSV In response to these markups, the Navy has restructured its acquisition strategy for the LUSV
program so as to comply with these legislative provisions and provide more time for developing program so as to comply with these legislative provisions and provide more time for developing
operational concepts and key technologies before entering into serial production of deployable operational concepts and key technologies before entering into serial production of deployable
~~units.~~

units. 20 Statement of Frederick J. Stefany, Acting Assistant Secretary of the Navy for Research, Development and 20 Statement of Frederick J. Stefany, Acting Assistant Secretary of the Navy for Research, Development and
Acquisition (ASNAcquisition (ASN (RD&A)) and Vice(RD&A)) and Vice Admiral JamesAdmiral James W. Kilby, Deputy Chief of Naval Operations, Warfighting W. Kilby, Deputy Chief of Naval Operations, Warfighting
Requirements and CapabilitiesRequirements and Capabilities (OPNAV N9) and Lieutenant General Eric M. Smith, Deputy Commandant, Combat (OPNAV N9) and Lieutenant General Eric M. Smith, Deputy Commandant, Combat
Development and Integration, Commanding General, Marine Corps Combat Development Command, before the Development and Integration, Commanding General, Marine Corps Combat Development Command, before the
Subcommittee on SeapowerSubcommittee on Seapower of the Senate Armed Servicesof the Senate Armed Services Committee on Department of the Navy Fiscal Year 2022 Committee on Department of the Navy Fiscal Year 2022
BudgetBudget ~~Request~~ Request for Seapower,for Seapower, ~~June~~ June 8, 2021, pp. 148, 2021, pp. 14 -15. -15.
21 In the William M. (Mac) 21 In the William M. (Mac) ~~T hornberry~~Thornberry National Defense Authorization Act for Fiscal Year 2021 (H.R. 6395 /P.L. 116- National Defense Authorization Act for Fiscal Year 2021 (H.R. 6395 /P.L. 116-
283 of January 1, 2021), these provisions included Sections 122 and 227.283 of January 1, 2021), these provisions included Sections 122 and 227.
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September 4, 2020 Contract Award
On September 4, 2020, DOD announced the following six contract awards for industry studies on On September 4, 2020, DOD announced the following six contract awards for industry studies on
the LUSV: the LUSV:
Huntington Ingalls Inc., Pascagoula, Mississippi (N00024-20-C-6319); Huntington Ingalls Inc., Pascagoula, Mississippi (N00024-20-C-6319); Lockheed Martin Lockheed Martin
Corp., Baltimore, Maryland (N00024-20-C-6320); Bollinger ShipyardsCorp., Baltimore, Maryland (N00024-20-C-6320); Bollinger Shipyards ~~Lockport~~ Lockport LLC, LLC,
Lockport, Louisiana (N00024-20-C-6316);Lockport, Louisiana (N00024-20-C-6316); Marinette Marine Corp., Marinette, Wisconsin Marinette Marine Corp., Marinette, Wisconsin
(N00024-20-C-6317); Gibbs & Cox Inc., Arlington,(N00024-20-C-6317); Gibbs & Cox Inc., Arlington, Virginia (N0002420C6318); and Virginia (N0002420C6318); and
Austal USA LLC, Mobile, Alabama (N00024-20-C-6315),Austal USA LLC, Mobile, Alabama (N00024-20-C-6315), are each being awarded a firm-are each being awarded a firm-
fixed price contract for studies of a Large Unmanned Surface Vessel with a combined value fixed price contract for studies of a Large Unmanned Surface Vessel with a combined value
across all awards of $41,985,112. across all awards of $41,985,112.
Each contract includes an option for engineering support, that if exercised, would bring the Each contract includes an option for engineering support, that if exercised, would bring the
cumulative value for all awards to $59,476,146. cumulative value for all awards to $59,476,146.
 
The contract awarded to Huntington The contract awarded to Huntington ~~Ingal s~~Ingalls Inc. is $7,000,000; 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 the contract awarded to Bol inger Shipyards Lockport LLC,Shipyards Lockport LLC, is $6,996,832; is $6,996,832;
 
the contract awarded to Marinette Marine Corp. is $6,999,783; the contract awarded to Marinette Marine Corp. is $6,999,783;
 
the contract awarded to Gibbs & Cox Inc. is $6,989,499; and the contract awarded to Gibbs & Cox Inc. is $6,989,499; and
 
the contract awarded to Austal USA LLC is $6,999,020. the contract awarded to Austal USA LLC is $6,999,020.
Work Work ~~will be performed in various locations in the contiguous U.S. in accordance~~ will be performed in various locations in the contiguous U.S. in accordance with with
each contract and is expected to be complete by August 2021, and if option(s) are exercised, each contract and is expected to be complete by August 2021, and if option(s) are exercised,
work is expected to be complete by May 2022. work is expected to be complete by May 2022.
Fiscal 2020 research, Fiscal 2020 research, development,development, ~~test and evaluation (Navy) funds~~ test and evaluation (Navy) funds in the amount in the amount
$41,985,112$41,985,112 ~~will~~ will be obligated at time of award and will not expire at the end of the current be obligated at time of award and will not expire at the end of the current
fiscal year. fiscal year.
These These ~~contracts were competitively procured via Federal Business Opportunities~~ contracts were competitively procured via Federal Business Opportunities (now (now
beta.SAM.gov) with eight offers received. The Naval Sea Systems Command, beta.SAM.gov) with eight offers received. The Naval Sea Systems Command,
Washington, D.C., is the contracting activity.22 Washington, D.C., is the contracting activity.22
A September 4, 2020, press report about the contract awards stated A September 4, 2020, press report about the contract awards stated
“These contracts were established in order to refine specifications and requirements for a “These contracts were established in order to refine specifications and requirements for a
Large Unmanned SurfaceLarge Unmanned Surface ~~Vessel and~~ Vessel and conduct reliabilityconduct reliability studies informedstudies informed by by industry industry
partners withpartners with ~~potential solutions prior to release~~ potential solutions prior to release of a Detail Designof a Detail Design ~~and~~ and Construction Construction
contract,” Navy spokesman Capt. Danny Hernandez told USNI News in a statement. contract,” Navy spokesman Capt. Danny Hernandez told USNI News in a statement.
“The “The ~~studies effort is designed to provide robust collaboration with government~~ studies effort is designed to provide robust collaboration with government and 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,
developmentdevelopment ~~of an affordable and effective platform; provide opportunities to~~ of an affordable and effective platform; provide opportunities to continue continue
maturing the performancematuring the performance ~~specifications~~ specifications and conduct analysisand conduct analysis of alternativeof alternative design design
approaches; facilitate reliability improvements and plans for governmentapproaches; facilitate reliability improvements and plans for government -furnished -furnished
equipmentequipment ~~and mechanical~~ and mechanical and electrical systems;and electrical systems; ~~and~~ and support developmentsupport development of cost of cost
reduction and other affordability initiatives,” Hernandez said.23 reduction and other affordability initiatives,” Hernandez said.23

22 Department of Defense, “22 Department of Defense, “ Contracts For Sept. 4, 2020,” accessed September 8, 2020. Contracts For Sept. 4, 2020,” accessed September 8, 2020. ~~T he~~The announcement is posted as 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 to read. paragraphs shown here to make the announcement easier to read.
23 Mallory Shelbourne,23 Mallory Shelbourne, “6 Companies Awarded“6 Companies Awarded Contracts to Start Work on Large Unmanned Surface Vehicle,”Contracts to Start Work on Large Unmanned Surface Vehicle,” USNI
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link to page 7 link to page 7 Navy Large Unmanned Surface and Undersea Vehicles

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, which would make them the size of a patrol craft. The Navy wants MUSVs, like LUSVs, to tons, which would make them the size of a patrol craft. The Navy wants MUSVs, like LUSVs, to
be low-cost, high-endurance, reconfigurable ships that can accommodate various payloads. Initial be low-cost, high-endurance, reconfigurable ships that can accommodate various payloads. Initial
payloads for MUSVs are to be payloads for MUSVs are to be ~~intel igence, surveil ance~~intelligence, surveillance and reconnaissance (ISR) payloads and and reconnaissance (ISR) payloads and
electronic warfare (EW) systems. The Navy is pursuing the MUSV program as a rapid electronic warfare (EW) systems. The Navy is pursuing the MUSV program as a rapid
prototyping effort under what is known as Section 804 middle tier acquisition authority.24 The prototyping effort under what is known as Section 804 middle tier acquisition authority.24 The
first MUSV prototype was funded in FY2019. first MUSV prototype was funded in FY2019.
The MUSV program is building on development work by the Defense Advanced Research The MUSV program is building on development work by the Defense Advanced Research
Projects Agency (DARPA) under its Anti-Submarine Warfare Continuous Trail Unmanned Vessel Projects Agency (DARPA) under its Anti-Submarine Warfare Continuous Trail Unmanned Vessel
(ACTUV)(ACTUV) effort and the Office of Naval Research (ONR) under its Medium Displacement USV effort and the Office of Naval Research (ONR) under its Medium Displacement USV
effort. As shown effort. As shown inin Figure 1, this work led to the design, construction, and testing of the , this work led to the design, construction, and testing of the
prototype Sea Hunter medium displacement USV, which has a reported length of 132 feet (about prototype Sea Hunter medium displacement USV, which has a reported length of 132 feet (about
40.2 meters) and a displacement of about 140 tons.25 The Navy’s MUSV program is also to 40.2 meters) and a displacement of about 140 tons.25 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. The Navy states that Strategic Capabilities Office for the LUSV program. The Navy states that
Medium Medium ~~unmanned surface vehicle (MUSV) is an unmanned sensor-ship, built to carry~~
~~modular payloads, and standardized for easy integration with current Navy~~ unmanned surface vehicle (MUSV) is an unmanned sensor-ship, built to carry modular payloads, and standardized for easy integration with current Navy systems. systems.
Inexpensive compared to manned combatants, MUSVs can be built in numbers, quickly Inexpensive compared to manned combatants, MUSVs can be built in numbers, quickly
adding capacity to the Fleet. MUSV delivers a distributed sensor network that can navigate adding capacity to the Fleet. MUSV delivers a distributed sensor network that can navigate
andand ~~operate~~ operate with man in/onwith man in/on the loop oversight,the loop oversight, ~~and~~ and will be capablewill be capable of weeksof weeks -long -long
deploymentsdeployments ~~and trans~~ and trans-oceanic-oceanic transits.transits. ~~The Navy awarded~~ The Navy awarded a design anda design and fabrication fabrication
contract to develop the first MUSV prototype which is targeted for delivery in FY 2023.26 contract to develop the first MUSV prototype which is targeted for delivery in FY 2023.26
On July 13, 2020, the Navy announced that it had awarded “a $34,999,948 contract to L3[Harris] On July 13, 2020, the Navy announced that it had awarded “a $34,999,948 contract to L3[Harris]
Technologies, Inc. for the development of a single Medium Unmanned Surface Vehicle (MUSV) Technologies, Inc. for the development of a single Medium Unmanned Surface Vehicle (MUSV)
prototype, with options to procure up to eight additional MUSVs. The award follows a full and prototype, with options to procure up to eight additional MUSVs. The award follows a full and
open competitive procurement process. Funding is in place on this contract for the initial open competitive procurement process. Funding is in place on this contract for the initial
prototype. With prototype. With al all options exercised, the contract is valued at $281,435,446 if additional funding options exercised, the contract is valued at $281,435,446 if additional funding
is provided in future budget years.”27 The Navy reportedly stated that there were five competitors is provided in future budget years.”27 The Navy reportedly stated that there were five competitors

~~News~~, News, September 4, 2020. See also Paul McLeary, “September 4, 2020. See also Paul McLeary, “ Navy AwardsNavy Awards ~~Study~~ Study Contracts On Large Unmanned ShipContracts On Large Unmanned Ship —As —As
CongressCongress Watches Closely,” Watches Closely,” Breaking Defense, September 4, 2020. , September 4, 2020.
24 This~~24 T his~~ is a reference to Section 804 of the FY2016 is a reference to Section 804 of the FY2016 ~~Nat ional~~National Defense Authorization Act (S. 1356/P.L. 114-92 of Defense Authorization Act (S. 1356/P.L. 114-92 of
November 25, 2015). November 25, 2015). ~~T he~~The rapid prototyping authority provided by that section is now codified at 10 U.S.C. rapid prototyping authority provided by that section is now codified at 10 U.S.C. 2302 note. 2302 note.
For more on this authority, see “For more on this authority, see “ Middle Middle ~~T ier~~Tier Acquisition (Section 804),” Acquisition (Section 804),” ~~MIT RE~~MITRE, undated, accessed, undated, accessed May 24, 2019, at May 24, 2019, at
https://aida.mitre.org/middle-tier/; and “https://aida.mitre.org/middle-tier/; and “ Acquisition Process, MiddleAcquisition Process, Middle ~~T ier~~ Tier Acquisition (Section 804),” AcqNotes, 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.
25 See, 25 See, for example, Megan Eckstein, “for example, Megan Eckstein, “ Sea Hunter Unmanned Ship Continues Autonomy Sea Hunter Unmanned Ship Continues Autonomy ~~T esting~~Testing as NAVSEA as NAVSEA Moves Moves
ForwardForward with Draft RFPwith Draft RFP ,” ,” USNI News,, April 29, 2019; Evan Milberg, “April 29, 2019; Evan Milberg, “ DARPA “DARPA “ Sea Hunter,” World’s Largest Sea Hunter,” World’s Largest
Autonomous Ship, Autonomous Ship, ~~T ransferred~~Transferred to U.S. Navy to U.S. Navy ,” ~~Com posites~~,” Composites Manufacturing Magazine, February 12, 2018; Sydney J. , February 12, 2018; Sydney J.
FreedbergFreedberg Jr., “Jr., “ DSD [Deputy Secretary of Defense] Work Embraces DARPA’sDSD [Deputy Secretary of Defense] Work Embraces DARPA’s Robot Boat, SeaRobot Boat, Sea Hunter,” Hunter,” Breaking
Defense, April 7, 2016. , April 7, 2016.
26 Statement of Frederick J. Stefany, Acting Assistant Secretary of the Navy for Research, Development and 26 Statement of Frederick J. Stefany, Acting Assistant Secretary of the Navy for Research, Development and
Acquisition (ASNAcquisition (ASN (RD&A)) and Vice(RD&A)) and Vice Admiral JamesAdmiral James W. Kilby, Deputy Chief of Naval Operations, Warfighting W. Kilby, Deputy Chief of Naval Operations, Warfighting
Requirements and CapabilitiesRequirements and Capabilities (OPNAV N9) and Lieutenant General Eric M. Smith, Deputy Commandant, Combat (OPNAV N9) and Lieutenant General Eric M. Smith, Deputy Commandant, Combat
Development and Integration, Commanding General, Marine Corps Combat Development Command, before the Development and Integration, Commanding General, Marine Corps Combat Development Command, before the
Subcommittee on SeapowerSubcommittee on Seapower of the Senate Armed Servicesof the Senate Armed Services Committee on Department of the Navy Fiscal Year 2022 Committee on Department of the Navy Fiscal Year 2022
BudgetBudget ~~Request~~ Request for Seapower,for Seapower, ~~June~~ June 8, 2021, pp. 148, 2021, pp. 14 -15. -15.
27 PEO Unmanned and Small 27 PEO Unmanned and Small Combatants Public Affairs, “Combatants Public Affairs, “ Navy AwardsNavy Awards Contract for Medium Unmanned Surface Contract for Medium Unmanned Surface
VehicleVehicle Prototype,” Naval Sea Systems Command, July 13, 2020. Prototype,” Naval Sea Systems Command, July 13, 2020.
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for the contract, but did not identify the other four. for the contract, but did not identify the other four.2828 Figure 10 shows a rendering of L3Harris’s shows a rendering of L3Harris’s
design concept. design concept.
Figure 10. Rendering of L3Harris Design Concept for MUSV

Source: L3HarrisL3Harris Technologies,Technologies, “L3Harris“L3Harris Technologies Awarded Medium Unmanned Surface VehicleTechnologies Awarded Medium Unmanned Surface Vehicle Program Program
from US Navy,” August 18, 2020. See also Richard R. Burgess,from US Navy,” August 18, 2020. See also Richard R. Burgess, “Navy’s Medium USV to Be Based on Commercial “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 will integrate the company’s ASView™ autonomy technology into a purpose-built 195-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 provideMUSV will provide intelligence,intelligence, ~~surveillance and reconnaissance to the~~ surveillance and reconnaissance to the 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 L3Harris will be the systems integrator and provide the mission autonomy and perception be the systems integrator and provide the mission autonomy and perception
technology as the prime contractor on the program. The program team includes Gibbs & technology as the prime contractor on the program. The program team includes Gibbs &
Cox and Incat Crowther who will provide the ship design and Swiftships will complete the Cox and Incat Crowther who will provide the ship design and Swiftships will complete the
construction of the vehicle. construction of the vehicle.
L3Harris is a world leader in actively powered Unmanned Surface Vehicle (USV) systems, L3Harris is a world leader in actively powered Unmanned Surface Vehicle (USV) systems,
with over 115 USVs delivered worldwide. L3Harris’ USVs are actively serving the Navy, with over 115 USVs delivered worldwide. L3Harris’ USVs are actively serving the Navy,
universities, research institutions and commercial businesses.29 universities, research institutions and commercial businesses.29
XLUUV Program
The XLUUV The XLUUV program, also known as the Orca program, was established to address a Joint program, also known as the Orca program, was established to address a Joint
Emergent Operational Need (JEON). As shown iEmergent Operational Need (JEON). As shown in Figure 2, ~~the~~ the Navy defines XLUUVs as UUVs Navy defines XLUUVs as UUVs
with a diameter of more than 84 inches, meaning that XLUUVswith a diameter of more than 84 inches, meaning that XLUUVs are to be too large to be launched are to be too large to be launched
from a manned Navy submarine.30 Consequently, XLUUVs instead from a manned Navy submarine.30 Consequently, XLUUVs instead ~~wil~~ will transported to a forward transported to a forward
operating port and then launched from pier. The Department of the Navy’s March 16, 2021, operating port and then launched from pier. The Department of the Navy’s March 16, 2021,
unmanned campaign framework document states that the XLUUV unmanned campaign framework document states that the XLUUV ~~wil~~ will be designed “to be designed “to

28 Rich Abott, “28 Rich Abott, “ L3Harris Wins $35 Million MUSVL3Harris Wins $35 Million MUSV Prototype Contract,” Prototype Contract,” Defense Daily, July 13, 2020. See also Sam , July 13, 2020. See also Sam
LaGrone, “LaGrone, “ Navy AwardsNavy Awards Contract for First Vessel In Its Family of Unmanned SurfaceContract for First Vessel In Its Family of Unmanned Surface Vehicles,”Vehicles,” USNI News,, July 14 July 14
(updated July(updated July 15), 2020; Paul McLeary, “15), 2020; Paul McLeary, “ Navy Inks Deal For NewNavy Inks Deal For New Unmanned FleetUnmanned Fleet ,” ,” Breaking Defense, July 13, 2020. , July 13, 2020.
29 L3Harris 29 L3Harris ~~T echnologies, “L3Harris T echnologies Awarded Medium~~ Technologies, “L3Harris Technologies Awarded Medium Unmanned SurfaceUnmanned Surface Vehicle Program from US Vehicle Program from US
Navy,” AugustNavy,” August 18, 2020. 18, 2020.
30 Navy submarines 30 Navy submarines ~~equipped~~ equipped with large-diameter vertical launch tubes can launch missileswith large-diameter vertical launch tubes can launch missiles or other payloads with or other payloads with
diameters of up to about 83 inches. diameters of up to about 83 inches.
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accommodate a variety of large payloads….”31 The Navy testified on March 18, 2021, that mines accommodate a variety of large payloads….”31 The Navy testified on March 18, 2021, that mines
~~wil~~ will be the initialbe the initial payload for XLUUVs.32 More payload for XLUUVs.32 More ~~specifical y~~specifically, the Navy wants to use XLUUVs to, , the Navy wants to use XLUUVs to,
among other things, covertly deploy the Hammerhead mine, a planned mine that would be among other things, covertly deploy the Hammerhead mine, a planned mine that would be
tethered to the seabed and armed with an antisubmarine torpedo, broadly similar to the Navy’s tethered to the seabed and armed with an antisubmarine torpedo, broadly similar to the Navy’s
Cold War-era CAPTOR (encapsulated torpedo) mine.33 Cold War-era CAPTOR (encapsulated torpedo) mine.33
The first five XLUUVs The first five XLUUVs were funded in FY2019 through the Navy’s research and development 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.34 (The other bidder was a team led by four Orca XLUUVs and associated support elements.34 (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.35 Boeing has partnered with the Technical Solutions division expanded to include the fifth Orca.35 Boeing has partnered with the Technical Solutions division
of Huntington of Huntington ~~Ingal s~~Ingalls Industries (HII) to build Orca XLUUVs.36 (A separate division of HII— Industries (HII) to build Orca XLUUVs.36 (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.) The Navy statesbuilders.) The Navy states:
Orca XLUUV Orca XLUUV is a multi-phased accelerated acquisition effort using [Title 10] USC Sec. is a multi-phased accelerated acquisition effort using [Title 10] USC Sec.
2358 [acquisition]2358 [acquisition] ~~authorities [for research and development projects] to rapidly~~ authorities [for research and development projects] to rapidly deliver deliver
capability to the Fleet. capability to the Fleet.
Phase 1 was a competitively sourced design effort. Two design contracts were awarded to Phase 1 was a competitively sourced design effort. Two design contracts were awarded to
Industry in FY 2017. Industry in FY 2017.
Phase Phase ~~2 commenced with a down select in FY 2019 to one of the Phase 1 vendors for~~
~~fabrication and testing of the vehicle and support elements.~~ 2 commenced with a down select in FY 2019 to one of the Phase 1 vendors for fabrication and testing of the vehicle and support elements. Five (5) Orca XLUUV Five (5) Orca XLUUV
operationallyoperationally relevant prototyperelevant prototype systems (vehicles,systems (vehicles, ~~mobile~~ mobile C2 equipment,C2 equipment, ~~and~~ and support support
equipment)equipment) ~~are being fabricated for demonstration and use by~~ are being fabricated for demonstration and use by the Fleet. Additional the Fleet. Additional
XLUUV technologies/capabilitiesXLUUV technologies/capabilities ~~risk reduction~~ risk reduction will occurwill occur in parallel, leveragingin parallel, leveraging the the
competitive Industrial base.37 competitive Industrial base.37
Phase 3 provides the option to fabricate up to four (4) additional systems from the vendor Phase 3 provides the option to fabricate up to four (4) additional systems from the vendor
who fabricated vehicles in Phase 2. Fabrication award of these additional Orca XLUUV who fabricated vehicles in Phase 2. Fabrication award of these additional Orca XLUUV
systemssystems ~~is planned to be no~~ is planned to be no earlier thanearlier than FY24. TransitionFY24. Transition ~~to an Acquisition~~ to an Acquisition Category Category
(ACAT) Program and production(ACAT) Program and production may occurmay occur as early as FY24, pendingas early as FY24, pending successful successful
completion of Government testing.38 completion of Government testing.38

31 Department of the Navy, 31 Department of the Navy, Department of the Navy Unmanned Campaign Framework, March 16, 2021, p. 16. , March 16, 2021, p. 16.
32 Richard R. Burgess,32 Richard R. Burgess, “ “Navy’s Orca XLUUVNavy’s Orca XLUUV to Have Mine-Laying Mission, Adm. Kilby Says,”to Have Mine-Laying Mission, Adm. Kilby Says,” Seapower, March 18, , March 18,
2021. 2021.
33 For a discussion 33 For a discussion of the Hammerhead mine, see, for example, David Hambling,of the Hammerhead mine, see, for example, David Hambling, “ “With Hammerhead Mine, U.S. Navy With Hammerhead Mine, U.S. Navy
Plots New Style Of Warfare Plots New Style Of Warfare ~~T o T ip~~To Tip Balance In South China Sea,” Balance In South China Sea,” Forbes, October 22, 2020. , October 22, 2020.
34 Department of Defense, 34 Department of Defense, Contracts for Feb. 13, 2019. .
35 Department of Defense, 35 Department of Defense, Contracts for March 27, 2019. .
36 See,36 See, for example, Hugh Lessig,for example, Hugh Lessig, “Shipbuilder“Shipbuilder ~~Lends~~ Lends a Hand with Rise of Robot Submarines,”a Hand with Rise of Robot Submarines,” Defense News,, May 26, May 26,
2019. 2019.
37 The~~37 T he~~ Navy states: “ Navy states: “ ~~T esting~~Testing and delivery of the vehicles and support elements has been delayed and delivery of the vehicles and support elements has been delayed to FY22 dueto FY22 due to to
contractor challenges and supplier issues.contractor challenges and supplier issues. ~~T he~~ The Navy is working with Boeing Navy is working with Boeing to mitigate schedule delaysto mitigate schedule delays and execute and execute
risk reduction testing under prototyping effort.” (risk reduction testing under prototyping effort.” (~~Departm ent~~Department of Defense, Fiscal Year (FY) 2022 Budget ~~Estim ates~~Estimates,
Navy Justification Book ~~Volum e~~Volume 2 of 5, Research, ~~Developm ent~~Development, Test & Evaluation, Navy , May 2021, p. 1301.) , May 2021, p. 1301.)
38 38 ~~T he~~The Navy states: “ Navy states: “ Fabrication awards of additional Orca XLUUVFabrication awards of additional Orca XLUUV systems are planned for FY24 and out, gradually systems are planned for FY24 and out, gradually
ramping up quantities in future fiscal years, depending on the progress from the first five systems.ramping up quantities in future fiscal years, depending on the progress from the first five systems. ~~” (~~~~Departm ent~~” (Department of
Defense, Fiscal Year (FY) 2022 Budget ~~Estim ates~~Estimates, Navy Justification Book ~~Volum e~~Volume 2 of 5, Research, ~~Developm ent~~Development, Test
& Evaluation, Navy, May 2021, p. 1301.) , May 2021, p. 1301.)
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XLUUV will have XLUUV will have ~~a modular payload bay, including a universal payload module,~~ a modular payload bay, including a universal payload module, with with
defined interfaces that current and future payloads must adhere to for employment from defined interfaces that current and future payloads must adhere to for employment from
the vehicle. The Hammerhead [mine] payload is the next payload for integration with Orca the vehicle. The Hammerhead [mine] payload is the next payload for integration with Orca
XLUUV. Other potentialXLUUV. Other potential ~~future~~ future payloads,payloads, advanced energyadvanced energy solutions,solutions, ~~and enhanced~~
~~autonomy and command and control will be developed and evaluated under the Core~~
~~Technologies PE [program element in the Navy’s research and development account]~~
~~0604029N,~~ and enhanced autonomy and command and control will be developed and evaluated under the Core Technologies PE [program element in the Navy’s research and development account] 0604029N, and/or by other Science and technology organizations, and integrated into Orca and/or by other Science and technology organizations, and integrated into Orca
XLUUVXLUUV ~~when ready.~~
~~The Navy is concurrently updating facilities at the Naval Base Ventura County site for~~
~~XLUUV testing, training, and work-ups, in coordination with large unmanned~~ when ready. The Navy is concurrently updating facilities at the Naval Base Ventura County site for XLUUV testing, training, and work-ups, in coordination with large unmanned surface surface
vessel testing for cost efficiencies. In parallel, the Navy is evaluating options for future far-vessel testing for cost efficiencies. In parallel, the Navy is evaluating options for future far-
forward basing locations.39 forward basing locations.39
Boeing’s Orca XLUUV Boeing’s Orca XLUUV design design ~~wil~~ will be informed by (but be informed by (but ~~wil~~ will differ in certain respects from) the differ in certain respects from) the
design of Boeing’s Echo Voyager UUVdesign of Boeing’s Echo Voyager UUV (Figure 11, Figure 12, a, and Figure 13).40 Echo Voyager is ).40 Echo Voyager is
roughly the size of a subway car—it is 51 feet long and has a rectangular cross section of 8.5 feet roughly the size of a subway car—it 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 by 8.5 feet, a weight in the air of 50 tons, and a range of up to 6,500 nautical miles. It can
accommodate a modular payload section up to 34 feet in length, increasing its length to as much accommodate a modular payload section up to 34 feet in length, increasing its length to as much
as 85 feet. A 34-foot modular payload section provides about 2,000 cubic feet of internal payload as 85 feet. A 34-foot modular payload section provides about 2,000 cubic feet of internal payload
volume; a shorter (14-foot) section provides about 900 cubic feet. Echo Voyager can also volume; a shorter (14-foot) section provides about 900 cubic feet. Echo Voyager can also
accommodate external payloads.41 The Navy states that the XLUUV accommodate external payloads.41 The Navy states that the XLUUV
is based is based ~~off Boeing’s Echo Voyager, but incorporates significant changes to~~ off Boeing’s Echo Voyager, but incorporates significant changes to support support
military mission requirements. This has resulted in challenges in establishing the military mission requirements. This has resulted in challenges in establishing the
manufacturing process, building up the industrial base, and aligning material purchases to manufacturing process, building up the industrial base, and aligning material purchases to
produceproduce the first groupthe first group of prototypeof prototype vehicles.vehicles. Orca representsOrca represents the leadingthe leading edge of edge of
autonomous maritime vehicle technology and will have extended range and a autonomous maritime vehicle technology and will have extended range and a
reconfigurable,reconfigurable, modular payload bay to supportmodular payload bay to support multiple payloadsmultiple payloads ~~and~~ and a variety of a variety of
missions.42 missions.42

39 39 Department of Defense, Fiscal Year (FY) 2022 Budget Estimates, Navy Justification Book Volume 2 of 5, Research,
~~Developm ent~~Development, Test & Evaluation, Navy, May 2021, p. 1306. , May 2021, p. 1306.
40 See,40 See, for example, Hugh Lessig,for example, Hugh Lessig, “Shipbuilder“Shipbuilder ~~Lends~~ Lends a Hand with Rise of Robot Submarines,”a Hand with Rise of Robot Submarines,” Defense News,, May 26, May 26,
2019. 2019.
41 Source: 41 Source: Boeing product sheet on Echo Voyager,Boeing product sheet on Echo Voyager, ~~accessed~~ accessed May 31, 2019, at https://www.boeing.com/resources/May 31, 2019, at https://www.boeing.com/resources/
boeingdotcom/defense/autonomous-systems/echo-voyager/echo_voyager_product_sheet.pdf. boeingdotcom/defense/autonomous-systems/echo-voyager/echo_voyager_product_sheet.pdf.
42 Statement of Fredrick J. Stefany, Acting Assistant Secretary of the Navy for 42 Statement of Fredrick J. Stefany, Acting Assistant Secretary of the Navy for Research, Development and Acquisition Research, Development and Acquisition
(ASN(ASN [RD&A]) and Vice[RD&A]) and Vice Admiral James W. Kilby, Deputy Chief of Naval Operations for Warfare Systems and 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 Lieutenant General Eric M. Smith, Deputy Commandant Combat Development and Integration & Commanding
General, Marine Corps Combat Development Command, before the House Armed ServicesGeneral, Marine Corps Combat Development Command, before the House Armed Services Committee Subcommittee Committee Subcommittee
on Seapoweron Seapower and Projection Forces, on Department of the Navy Unmanned Systems, March 18, 2021, p. 12.and Projection Forces, on Department of the Navy Unmanned Systems, March 18, 2021, p. 12.
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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#/index.page#/~~gal ery~~gallery. .
Figure 12. 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#/index.page#/~~gal ery~~gallery. .
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Figure 13. Boeing Echo Voyager UUV

Source: Navy briefing entitled “Unmanned Maritime Navy briefing entitled “Unmanned Maritime Systems,”Systems,” Howard Berkof,Howard Berkof, Deputy Program Manager, Deputy Program Manager,
Unmanned Maritime Systems,Unmanned Maritime Systems, PMS 406, Distribution A: Approved for public release;PMS 406, Distribution A: Approved for public release; distribution unlimited, distribution unlimited,
October 23, 2019, slide 5. October 23, 2019, slide 5.
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  How ~~wel~~ well developed, and how developed, and how ~~wel~~ well tested, are the operational concepts tested, are the operational concepts
associated with the more distributed architecture? associated with the more distributed architecture?
The Navy states The Navy states:
As directed in the FY 2021 National Defense Authorization Act,43 the Navy is conducting As directed in the FY 2021 National Defense Authorization Act,43 the Navy is conducting
a Distributeda Distributed ~~Offensive Surface~~ Offensive Surface Fires AoAFires AoA [analysis[analysis of alternatives] to compare the currently planned large unmanned surface vessel (LUSV) with an ~~of alternatives] to compare the~~
~~currently planned large unmanned surface vessel (LUSV) with an~~ integrated missile integrated missile
launcher payload against a broad range of alternative surface platforms and capabilities to launcher payload against a broad range of alternative surface platforms and capabilities to
determine the most appropriate vessel to deliver additional missile capability and capacity determine the most appropriate vessel to deliver additional missile capability and capacity
to theto the ~~surface force. We expect to complete this analysis and report our findings~~ surface force. We expect to complete this analysis and report our findings to to
Congress before the end of this calendar year.44 Congress before the end of this calendar year.44

43 Section 227(e) of H.R. 6395/P.L. 116-283 of January 1, 2021. 43 Section 227(e) of H.R. 6395/P.L. 116-283 of January 1, 2021.
44 Statement of Frederick J. Stefany, Acting Assistant Secretary of the Navy for Research, 44 Statement of Frederick J. Stefany, Acting Assistant Secretary of the Navy for Research, ~~Develop ment~~Development and and
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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
~~wil~~ will operate these UVs in conjunction with manned Navy ships in various operational scenarios, operate these UVs in conjunction with manned Navy ships in various operational scenarios,
and consequently how, exactly, these UVs and consequently how, exactly, these UVs ~~wil~~ will fit into the Navy’s fit into the Navy’s ~~overal~~ overall force structure and force structure and
operations. Potential oversight questions for Congress include the following: operations. Potential oversight questions for Congress include the following:
 How fully has the Navy developed its CONOPS for these large UVs? What  How fully has the Navy developed its CONOPS for these large UVs? What
activities is the Navy undertaking to develop its CONOPS for them? activities is the Navy undertaking to develop its CONOPS for them?
 What is the Navy’s CONOPS for using these large UVs in day-to-day,  What is the Navy’s CONOPS for using these large UVs in day-to-day,
noncombat operations? noncombat operations?
 How sensitive are the performance requirements that the Navy has established  How sensitive are the performance requirements that the Navy has established
for these large UVs to potential changes in their CONOPS that may occur as the for these large UVs to potential changes in their CONOPS that may occur as the
Navy continues to develop the CONOPS? How likely is it, if at Navy continues to develop the CONOPS? How likely is it, if at al all, that the Navy , that the Navy
~~wil~~ will have to change the performance requirements for these large UVs as a have to change the performance requirements for these large UVs as a
consequence of more fully developing their CONOPS? consequence of more fully developing their CONOPS?
As mentioned earlier, As mentioned earlier, in May 2019, the Navy established a surface development squadron to help in May 2019, the Navy established a surface development squadron to help
develop operational concepts for LUSVs and MUSVs. The squadron was develop operational concepts for LUSVs and MUSVs. The squadron was ~~initial y~~ initially to consist of a to 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 reportedly was to be added around the end of FY2020, . A second Sea Hunter prototype reportedly was to be added around the end of FY2020,
and LUSVs and MUSVsand LUSVs and MUSVs would then be added as they become available.45 A September 9, 2020, would then be added as they become available.45 A September 9, 2020,
press report statespress report states:
Development squadrons Development squadrons ~~working with unmanned underwater and surface vehicles~~ working with unmanned underwater and surface vehicles are are
moving out quickly to develop concepts of operations and human-machine interfaces, even moving out quickly to develop concepts of operations and human-machine interfaces, even
as they’re still using prototypes ahead of the delivery of fleet USVs and UUVs, officials 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(SURFDEVRON), is ~~planning an upcoming weeks -long experiment with sailors in~~ planning an upcoming weeks-long experiment with sailors in an 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),One (UUVRON-1), is pushing the limits of his test vehicles to send the program office a is pushing the limits of his test vehicles to send the program office a
list of vehicle behaviors that his operators need their UUVs to have that the commercial list of vehicle behaviors that his operators need their UUVs to have that the commercial
prototypes today don’t have. prototypes today don’t have.

Acquisition (ASNAcquisition (ASN (RD&A)) and Vice(RD&A)) and Vice Admiral JamesAdmiral James W. Kilby, Deputy Chief of Naval Operations, Warfighting W. Kilby, Deputy Chief of Naval Operations, Warfighting
Requirements and CapabilitiesRequirements and Capabilities (OPNAV N9) and Lieutenant General Eric M. Smith, Deputy Commandant, Combat (OPNAV N9) and Lieutenant General Eric M. Smith, Deputy Commandant, Combat
Development and Integration, Development and Integration, ~~Commandin g~~Commanding General, Marine Corps Combat Development Command, before the General, Marine Corps Combat Development Command, before the
Subcommittee on SeapowerSubcommittee on Seapower of the Senate Armed Servicesof the Senate Armed Services Committee on Department of the Navy Fiscal Year 2022 Committee on Department of the Navy Fiscal Year 2022
BudgetBudget ~~Request~~ Request for Seapower,for Seapower, ~~June~~ June 8, 2021, p. 14. See also Jason Sherman, “8, 2021, p. 14. See also Jason Sherman, “ Navy considering alternatives to LUSV, Navy considering alternatives to LUSV,
packing amphibs, commercial designspacking amphibs, commercial designs more with long-range missiles,”more with long-range missiles,” Inside Defense, April 9, 2021. , April 9, 2021.
45 See, 45 See, for example, Megan Eckstein, “Navy Stands Up Surfacefor example, Megan Eckstein, “Navy Stands Up Surface Development SquadronDevelopment Squadron for DDG-1000, Unmanned for DDG-1000, Unmanned
Experimentation,” Experimentation,” USNI News, May 22, 2019; David B., May 22, 2019; David B. Larter, “With Billions Planned in Funding,Larter, “With Billions Planned in Funding, the USthe US Navy Navy
Charts Its Unmanned Future,” Charts Its Unmanned Future,” Defense News,, May 6, 2019. See also Michael Fabey, “USN SeeksMay 6, 2019. See also Michael Fabey, “USN Seeks Path for Unmanned Path for Unmanned
Systems Operational Concepts,” Systems Operational Concepts,” Jane’s Navy International, May 16, 2019. , May 16, 2019.
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The two spoke The two spoke during a panel at the Associationduring a panel at the Association for Unmannedfor Unmanned Vehicle Systems Vehicle Systems
International (AUVSI) annual defense conference on Tuesday, andInternational (AUVSI) annual defense conference on Tuesday, and made clear that they made clear that they
want to have the fleet trained and ready to start using UUVs and USVs when industry is want to have the fleet trained and ready to start using UUVs and USVs when industry is
ready to deliver them.46 ready to deliver them.46
An October 30, 2020, press report stated: An October 30, 2020, press report stated:
The Navy is set to complete and release a concept of operations for the medium and large The Navy is set to complete and release a concept of operations for the medium and large
unmanned surfaceunmanned surface vehicles invehicles in “the“the next few months,”next few months,” ~~a Navy spokesman told~~ a Navy spokesman told Inside Inside
Defense. Defense.
Alan Baribeau, a spokesman Alan Baribeau, a spokesman for Naval Sea Systemsfor Naval Sea Systems Command, said the Navy extended Command, said the Navy extended
the due date to allow for more flexibilitythe due date to allow for more flexibility during the COVID-19 pandemic and allow for during the COVID-19 pandemic and allow for
sufficient time for review and staffing…. sufficient time for review and staffing….
The CONOPS is currently The CONOPS is currently ~~undergoing~~ undergoing flag-level review after completing action officer-flag-level review after completing action officer-
level review as well as O6-level review, Baribeau said.47 level review as well as O6-level review, Baribeau said.47
Acquisition Strategies and Funding Method
Another potential oversight issue for Congress concerns the acquisition strategies that the Navy Another potential oversight issue for Congress concerns the acquisition strategies that the Navy
wants to use for these large UV programs. Potential oversight questions for Congress include the wants to use for these large UV programs. Potential oversight questions for Congress include the
following: following:
 Are the Navy’s proposed changes to the LUSV’s acquisition strategy appropriate  Are the Navy’s proposed changes to the LUSV’s acquisition strategy appropriate
and sufficient in terms of complying with Congress’s legislative provisions and and sufficient in terms of complying with Congress’s legislative provisions and
providing enough time to develop operational concepts and key technologies providing enough time to develop operational concepts and key technologies
before entering into serial production of deployable units? before entering into serial production of deployable units?
 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 cost risk in these programs, particularly given that these platforms ~~potential y~~potentially are to operate at sea 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? Are these risk-mitigation and risk-while it seeks to deploy these UVs? Are these risk-mitigation and risk-
management efforts appropriate and sufficient? 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?

46 Megan Eckstein, “46 Megan Eckstein, “ ~~USV, UUV Squadrons T esting~~USV, UUV Squadrons Testing Out Concepts Ahead of Delivery of Out Concepts Ahead of Delivery of ~~T heir~~Their Vehicles,” Vehicles,” USNI News, ,
September 9, 2020. September 9, 2020.
47 Aidan Quigley,47 Aidan Quigley, “ “Navy Finishing Unmanned SurfaceNavy Finishing Unmanned Surface ~~Vehicles~~ Vehicles Concept of Operations ‘in Next Few Months,’” Concept of Operations ‘in Next Few Months,’” Inside
Defense, October 30, 2020. , October 30, 2020.
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A June 1, 2020, press report states A June 1, 2020, press report states
The The U.S. military is banking on unmanned surface and subsurface vessels to boost its capacity in the face of a tsunami of Chinese naval spending. But before it can field ~~U.S. military is banking on unmanned surface and subsurface vessels to boost its~~
~~capacity in the face of a tsunami of Chinese naval spending. But before it can field~~ the the
systems, it must answer some basic questions. systems, it must answer some basic questions.
How will How will these systems deploy? How will they be supported overseas? Who will support these systems deploy? How will they be supported overseas? Who will support
them? Can the systems be made sufficiently reliable to operate alone and unafraid on the them? Can the systems be made sufficiently reliable to operate alone and unafraid on the
openopen ~~ocean for weeks at a time? Will the systems be able to communicate in denied~~
~~environments?~~
~~As the Navy goes all-in on its unmanned future, with billions of dollars of~~ ocean for weeks at a time? Will the systems be able to communicate in denied environments? As the Navy goes all-in on its unmanned future, with billions of dollars of investments investments
planed, how the service answers those questions will be crucial to the planed, how the service answers those questions will be crucial to the ~~s uccess~~success or failure of or failure of
its unmanned pivot.48 its unmanned pivot.48
A June 23, 2020, press report states A June 23, 2020, press report states
The Navy’s transition from prototype to program of record for its portfolio of unmanned The Navy’s transition from prototype to program of record for its portfolio of unmanned
surfacesurface ~~and~~ and undersea systems isundersea systems is ~~being aided by industry, international partners~~ being aided by industry, international partners and and
developmentaldevelopmental ~~squadrons, even as the program office seeks to ease concerns that the~~
~~transition is happening too fast, the program executive officer for unmanned and smal~~
squadrons, even as the program office seeks to ease concerns that the transition is happening too fast, the program executive officer for unmanned and small 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
eventevent ~~today co-hosted by~~ today co-hosted by the U.S. Naval Institute andthe U.S. Naval Institute and ~~the Center~~ the Center for Strategicfor Strategic and and
International Studies.49 International Studies.49
An August 17, 2020, press report states An August 17, 2020, press report states
As As ~~the U.S. Navy pushes forward with developing its large unmanned surface~~ the U.S. Navy pushes forward with developing its large unmanned surface vessel, 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
surfacesurface combatants,combatants, ~~a growing~~ a growing consensus isconsensus is forming thatforming that ~~the service needs to get~~ the service needs to get its its
requirements and systems right before making a big investment.… requirements and systems right before making a big investment.…
In an exclusive July 16 interview In an exclusive July 16 interview with Defense News, Chief of Naval Operationswith Defense News, Chief of Naval Operations Adm. Adm.
Michael Gilday said that while the [congressional] marks [on the program] were Michael Gilday said that while the [congressional] marks [on the program] were
frustrating, he agreed with Congress that requirements must be concrete right up front. frustrating, he agreed with Congress that requirements must be concrete right up front.
“The approach has to be deliberate,” Gilday said. “We have to make sure that the systems “The approach has to be deliberate,” Gilday said. “We have to make sure that the systems
thatthat ~~are on those unmanned systems with respect to the [hull, mechanical and electrical~~
~~system], that they are designed to requirement, and perform to requirement. And~~ are on those unmanned systems with respect to the [hull, mechanical and electrical system], that they are designed to requirement, and perform to requirement. And most most
importantly, are those requirements sound? importantly, are those requirements sound?
“I go back to [a question from years ago relating to the development of the Navy’s Littoral “I go back to [a question from years ago relating to the development of the Navy’s Littoral
Combat Ship (LCS)]:Combat Ship (LCS)]: Do I really need a littoral combat ship to go 40 knots? That’s going Do I really need a littoral combat ship to go 40 knots? That’s going
to drive the entire design of the ship, not just the engineering plant but how it’s built. That to drive the entire design of the ship, not just the engineering plant but how it’s built. That
becomes a critical factor. If you take your eye off the ball with respect to requirements, you becomes a critical factor. If you take your eye off the ball with respect to requirements, you
can find yourself drifting. That has to be deliberate.” can find yourself drifting. That has to be deliberate.”

48 David B. Larter, “48 David B. Larter, “ US Navy Embraces Robot Ships,US Navy Embraces Robot Ships, But Some Unresolved IssuesBut Some Unresolved Issues Are HoldingAre Holding ~~T hem~~ Them Back,” Back,” Defense
News,, June 1, 2020. See also Bryan Clark, “June 1, 2020. See also Bryan Clark, “ Pentagon Needs Pentagon Needs ~~T o~~To Go Faster—And Slower—On Go Faster—And Slower—On Unmanned Systems,” Unmanned Systems,”
Forbes, June, June 11, 2020. 11, 2020.
49 Megan Eckstein, “49 Megan Eckstein, “ Program Office Maturing USVs,Program Office Maturing USVs, ~~UUVs~~ UUVs With Help From Industry, International Partners,” With Help From Industry, International Partners,” USNI
News,, June 23, 2020. June 23, 2020.
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Gilday has called for the Navy to pursue a comprehensive “Unmanned Campaign Plan” Gilday has called for the Navy to pursue a comprehensive “Unmanned Campaign Plan”
that creates a path forward for developing and fielding unmanned systems in the air, on the that creates a path forward for developing and fielding unmanned systems in the air, on the
sea and under the water. Right now, the effort exists in a number of different programs that sea and under the water. Right now, the effort exists in a number of different programs that
may not all be pulling in the same direction, he said. may not all be pulling in the same direction, he said.
“What “What ~~I’ve found is that we didn’t necessarily have the rigor that’s required across a~~
~~number of programs that would bring those together in a way that’s driven toward~~
~~objectives with milestones,” Gilday told Defense News. “If you took a look at [all the~~
~~programs], where are there similarities and where are there differences? Where am I~~
~~making progress in meeting conditions and meeting milestones that we can leverage~~ I’ve found is that we didn’t necessarily have the rigor that’s required across a number of programs that would bring those together in a way that’s driven toward objectives with milestones,” Gilday told Defense News. “If you took a look at [all the programs], where are there similarities and where are there differences? Where am I making progress in meeting conditions and meeting milestones that we can leverage in in
other experiments? other experiments?
“At what point do I reach a decision point where I drop a program and double down on a “At what point do I reach a decision point where I drop a program and double down on a
program that I can accelerate?”50 program that I can accelerate?”50
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 Several Navy program officials and resource sponsors today outlined how they’ll spend spend
thethe ~~next couple years giving Congress enough confidence in unmanned surface~~ next couple years giving Congress enough confidence in unmanned surface and and
underwater vehicles to allow the service to move from prototyping into programs of record. underwater vehicles to allow the service to move from prototyping into programs of record.
Across the entire family of USVs and UUVs, the Navy has prototypes in the water today Across the entire family of USVs and UUVs, the Navy has prototypes in the water today
for experimentation and in tandem is making plans to design and buy the next better vehicle for experimentation and in tandem is making plans to design and buy the next better vehicle
or more advanced payloads, with the idea that the service will iterate its way to achieve or more advanced payloads, with the idea that the service will iterate its way to achieve
congressional confidence and authorization to move forward on buying these unmanned congressional confidence and authorization to move forward on buying these unmanned
systems in bulk. systems in bulk.
Rear Adm. Casey Moton, Rear Adm. Casey Moton, the program executive officer for unmanned andthe program executive officer for unmanned and small small
combatants, spoke today at the Association for Unmanned Vehicle Systems International combatants, spoke today at the Association for Unmanned Vehicle Systems International
(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 of ‘what,’‘what,’ ~~in terms of requirements and mission type. And of course, ‘how many’ is a~~
~~question. How many, I will not focus on today. How many is dependent on Navy~~ in terms of requirements and mission type. And of course, ‘how many’ is a question. How many, I will not focus on today. How many is dependent on Navy and and
[Office of the Secretary of Defense] force structure work. But for PEO USC, how many is [Office of the Secretary of Defense] force structure work. But for PEO USC, how many is
ultimatelyultimately ~~important, but our focus now in this prototyping and experimentation and~~
~~development phase is on the how, and working with our requirements sponsors and the~~
~~fleet on the what.”~~
~~The most ambitious part of the Navy’s current plan calls for the start of a~~ important, but our focus now in this prototyping and experimentation and development phase is on the how, and working with our requirements sponsors and the fleet on the what.” The most ambitious part of the Navy’s current plan calls for the start of a Large USV Large USV
program of record in Fiscal Year 2023, despite the LUSV being the piece of the family of program of record in Fiscal Year 2023, despite the LUSV being the piece of the family of
USVsUSVs ~~that Congress takes issue with the most. The Navy intends for these ships to~~ that Congress takes issue with the most. The Navy intends for these ships to be be
armed with vertical launch system cells to fire off defensive and offensive missiles—with armed with vertical launch system cells to fire off defensive and offensive missiles—with
sailors onboard manned ships overseeing targeting and firing decisions, since there would sailors onboard manned ships overseeing targeting and firing decisions, since there would
be no personnel on the LUSV.51 be no personnel on the LUSV.51

50 David B. Larter, “50 David B. Larter, “ In Developing Robot Warships, US Navy Wants to Avoid Another Littoral Combat Ship,” In Developing Robot Warships, US Navy Wants to Avoid Another Littoral Combat Ship,” Defense
News,, ~~August~~ August 17, 2020. See also Loren 17, 2020. See also Loren ~~T hompson, “~~ Thompson, “U.S. Navy Mounts Campaign U.S. Navy Mounts Campaign ~~T o~~To Convince Congress Convince Congress ~~T hat~~That
Unmanned VesselsUnmanned Vessels Are Critical Are Critical ~~T o~~To Winning Future Wars,” Winning Future Wars,” Forbes, August, August 17, 2020. 17, 2020.
51 Megan Eckstein, “51 Megan Eckstein, “ Navy Pushing to Maintain 2023 USV Program of Record Navy Pushing to Maintain 2023 USV Program of Record ~~T imeline~~Timeline,” ,” USNI News,, September 8, September 8,
2020. 2020.
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A March 26, 2021, press report about a March 18, 2021, hearing on Department of the Navy A March 26, 2021, press report about a March 18, 2021, hearing on Department of the Navy
unmanned vehicle programs before the Seapower and Projection Forces subcommittee of the unmanned vehicle programs before the Seapower and Projection Forces subcommittee of the
House Armed Services Committee stated: House Armed Services Committee stated:
On the unmanned underwater vehicle side, the Navy’s largest vehicle in development is On the unmanned underwater vehicle side, the Navy’s largest vehicle in development is
hitting some snags, though [Vice Adm. Jim Kilby, the deputy chief of naval operations for hitting some snags, though [Vice Adm. Jim Kilby, the deputy chief of naval operations for
warfightingwarfighting ~~requirements and capabilities (OPNAV N9)] said it was a production~~ requirements and capabilities (OPNAV N9)] said it was a production issue issue
more than a fundamental issue with the service’s requirements. more than a fundamental issue with the service’s requirements.
Kilby said the Navy wanted the Orca Extra Large UUV to lay mines in the water, among Kilby said the Navy wanted the Orca Extra Large UUV to lay mines in the water, among
other clandestine operations. But building a UUV that can do that is more other clandestine operations. But building a UUV that can do that is more ~~co mplex~~complex than it than it
sounds, he told lawmakers. sounds, he told lawmakers.
“I’ve got to avoid fishing nets and sea mounts and currents and all the things. I’ve got to “I’ve got to avoid fishing nets and sea mounts and currents and all the things. I’ve got to
be able to communicate with it, sustain it. I’ve got to maybe be able to tell it to abort a be able to communicate with it, sustain it. I’ve got to maybe be able to tell it to abort a
mission, which means it has to come up to the surfacemission, which means it has to come up to the surface and communicate,and communicate, ~~or get~~
~~communications from its current depth. Those are all complexities we’ve got to~~ or get communications from its current depth. Those are all complexities we’ve got to work work
through with the [concept of operations] of this vehicle,” he said. through with the [concept of operations] of this vehicle,” he said.
“In its development, though, there have been delays with the contractor that we’re working “In its development, though, there have been delays with the contractor that we’re working
through, and we want to aggressively work with them to pursue, to get this vehicle down through, and we want to aggressively work with them to pursue, to get this vehicle down
to Port Hueneme so we can start testing it and understand its capabilities. And to me the to Port Hueneme so we can start testing it and understand its capabilities. And to me the
challenges will be all those things – the C2, the endurance, the delivery of the payload, the challenges will be all those things – the C2, the endurance, the delivery of the payload, the
ability to change mission potentially – those are all things we have to deliver to meet the ability to change mission potentially – those are all things we have to deliver to meet the
needs of the combatant commander.” needs of the combatant commander.”
Boeing is on contract to build five XLUUVs, which were supposed to be delivered Boeing is on contract to build five XLUUVs, which were supposed to be delivered by 2022. by 2022.
ConstructionConstruction ~~on the~~ on the first vesselfirst vessel didn’tdidn’t ~~begin~~ begin until late last year, though,until late last year, though, ~~and~~ and Kilby Kilby
categorized the program as alive but delayed. categorized the program as alive but delayed.
Asked Asked ~~by seapower subcommittee chairman Rep. Joe Courtney (D-Conn.) if Orca~~ by seapower subcommittee chairman Rep. Joe Courtney (D-Conn.) if Orca was was
proving to be a program thatproving to be a program that had failed and the Navy needed to cut its losses on, Kilby had failed and the Navy needed to cut its losses on, Kilby
said, “I think we’re going to get these first five vessels, and in the spirit of the committee, said, “I think we’re going to get these first five vessels, and in the spirit of the committee,
we want to make sure we’ve got it right before we go build something else. I think it’s we want to make sure we’ve got it right before we go build something else. I think it’s
scoped out ideally, we’ve got to get through those technical and operational challenges to scoped out ideally, we’ve got to get through those technical and operational challenges to
go deliver on the capability we’re trying to close on.” go deliver on the capability we’re trying to close on.”
He said He said ~~earlier in the hearing that “we are pursuing that vehicle because we have an~~
~~operational need from a combatant commander to go solve this specific problem. That~~
earlier in the hearing that “we are pursuing that vehicle because we have an operational need from a combatant commander to go solve this specific problem. That vessel really hasn’t operated – the XLUUV is, as you know, a migration from the Echo vessel really hasn’t operated – the XLUUV is, as you know, a migration from the Echo
Voyager from Boeing with a mission module placed in the middle of it to initially carry Voyager from Boeing with a mission module placed in the middle of it to initially carry
mines. We need to get that initial prototype built and start employing it start seeing if we mines. We need to get that initial prototype built and start employing it start seeing if we
can achieve the requirements to go do that mission set. And I think, to the point so far made can achieve the requirements to go do that mission set. And I think, to the point so far made
several times, if we can’t meet our milestones, we need to critically look at that and decide several times, if we can’t meet our milestones, we need to critically look at that and decide
if weif we ~~have to pursue another model or another methodology to get after that~~ have to pursue another model or another methodology to get after that combatant combatant
need. But in the case of the XLUUV, we haven’t even had enough run time with that vessel need. But in the case of the XLUUV, we haven’t even had enough run time with that vessel
to make that determination yet. Certainly, there’s challenges with that vehicle, though.”52 to make that determination yet. Certainly, there’s challenges with that vehicle, though.”52
An April An April 13, 2021, press report states13, 2021, press report states:
The Navy is making arrangements for land-based testing of its Medium Unmanned Surface The Navy is making arrangements for land-based testing of its Medium Unmanned Surface
Vessel prototype and eyeing similar plans for its Large USV, as the sea service tries to get Vessel prototype and eyeing similar plans for its Large USV, as the sea service tries to get
Congress on board with its plans to rapidly field unmanned vehicles in all domains to create Congress on board with its plans to rapidly field unmanned vehicles in all domains to create
a hybrid manned-unmanned force. a hybrid manned-unmanned force.
Rear Adm. Casey Moton, Rear Adm. Casey Moton, the program executive officer for unmanned andthe program executive officer for unmanned and small small
combatants, said today at an event hosted by AUVSI [Association for Unmanned Vehicle combatants, said today at an event hosted by AUVSI [Association for Unmanned Vehicle

52 Megan Eckstein, “52 Megan Eckstein, “ Status Report: Navy Unmanned Aerial, SubsurfaceStatus Report: Navy Unmanned Aerial, Subsurface Platforms,” Platforms,” USNI News, March 26, 2021. , March 26, 2021.
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Systems International] that the Navy and Systems International] that the Navy and Pentagon already have fourPentagon already have four medium and large medium and large
USV prototypes in the water today and will have three more delivered in the next few years. USV prototypes in the water today and will have three more delivered in the next few years.
“The testing we’re doing at sea on those systems is very important for [hull, mechanical “The testing we’re doing at sea on those systems is very important for [hull, mechanical
andand electrical systems],electrical systems], ~~and~~ and we’re goingwe’re going ~~to continue that. Where we have~~ to continue that. Where we have definitely definitely
expanded our plans is on the land-based side,” he said. expanded our plans is on the land-based side,” he said.
The Navy’s pitch was to begin buying prototype vessels in numbers so the service could The Navy’s pitch was to begin buying prototype vessels in numbers so the service could
learn a lot about both HM&E [hull, mechanical, and electrical] component reliability and learn a lot about both HM&E [hull, mechanical, and electrical] component reliability and
USVUSV concepts of operations before beginning a program of record to buy new vessels in concepts of operations before beginning a program of record to buy new vessels in
bulk.bulk. ~~Lawmakers had concerns that the Navy wouldn’t be able to collect enough~~ Lawmakers had concerns that the Navy wouldn’t be able to collect enough data data
before beginning the programs of record and have insisted the Navy invest in land-based before beginning the programs of record and have insisted the Navy invest in land-based
testing to wring out components that will have to be able to operate for weeks or months testing to wring out components that will have to be able to operate for weeks or months
at sea without sailors around to perform routine maintenance or to take corrective action if at sea without sailors around to perform routine maintenance or to take corrective action if
something fails. something fails.
Moton said during the event that he appreciates that leadership, including House Armed Moton said during the event that he appreciates that leadership, including House Armed
Services seapower and projection forces subcommittee chairman Rep. Joe Courtney (D-Services seapower and projection forces subcommittee chairman Rep. Joe Courtney (D-
Conn.) and ranking member Rep. Rob Wittman (Va.), have expressed support for the idea Conn.) and ranking member Rep. Rob Wittman (Va.), have expressed support for the idea
of an unmanned fleet in general, and Moton promised that they’d see the Navy showing of an unmanned fleet in general, and Moton promised that they’d see the Navy showing
engineeringengineering rigor in everyrigor in every ~~step along the way~~ step along the way—including—including HM&E reliability testing, HM&E reliability testing,
command and control testing, adjusting combat systems to operate on unmanned vehicles, command and control testing, adjusting combat systems to operate on unmanned vehicles,
developing common control stations, maturing autonomy software and more. developing common control stations, maturing autonomy software and more.
On land-based testing, Moton said, “on the Medium USV, we are right now in the process On land-based testing, Moton said, “on the Medium USV, we are right now in the process
of executing funding that we received from Congress to go do our work on Medium USV. of executing funding that we received from Congress to go do our work on Medium USV.
WeWe ~~are going to have representative equipment that we are buying” that can be~~ are going to have representative equipment that we are buying” that can be tested tested
ashore, where the gear can be run without human preventative or corrective maintenance ashore, where the gear can be run without human preventative or corrective maintenance
to see how reliable it would be on an unmanned vehicle operating independently. to see how reliable it would be on an unmanned vehicle operating independently.
“We are buying equipment, and some of the plans specifically about where it’s going to go “We are buying equipment, and some of the plans specifically about where it’s going to go
and the testing are still in the work, so I won’t say too much, but we are working on Medium and the testing are still in the work, so I won’t say too much, but we are working on Medium
USV land-based testing.” USV land-based testing.”
LUSV LUSV land-based testing is a little farther down the road, he said, but some of the lessons land-based testing is a little farther down the road, he said, but some of the lessons
from MUSV will apply directly to LUSV. from MUSV will apply directly to LUSV.
“It is true that propulsion plants are not all the same, but a lot of the things that we’re doing “It is true that propulsion plants are not all the same, but a lot of the things that we’re doing
– the ability to control machinery plants autonomously, the ability to improve the timeline – the ability to control machinery plants autonomously, the ability to improve the timeline
between [planned maintenance], to do things that are relatively straightforward like shift a between [planned maintenance], to do things that are relatively straightforward like shift a
lube oil strainer without a human having to do it—those things scale between medium and lube oil strainer without a human having to do it—those things scale between medium and
large, so a lot of what we’re doing in Medium is going to scale directly to Large,” he said. large, so a lot of what we’re doing in Medium is going to scale directly to Large,” he said.
“Where “Where ~~we are now going to add to our plan for Large is kind of at the big pieces~~ we are now going to add to our plan for Large is kind of at the big pieces of of
equipment, and some of this was in the [National Defense Authorization Act] for last year: equipment, and some of this was in the [National Defense Authorization Act] for last year:
the propulsion equipment, the electrical equipment. We’re still kind of working plans out, the propulsion equipment, the electrical equipment. We’re still kind of working plans out,
but our plan is to take representative pieces of equipment and to test them. I don’t want to but our plan is to take representative pieces of equipment and to test them. I don’t want to
get quite yet into specifics on where that’s going to happen or how that’s going to happen, get quite yet into specifics on where that’s going to happen or how that’s going to happen,
because we’re kind of working that out right now, but we are going to go down that path.” because we’re kind of working that out right now, but we are going to go down that path.”
Among the challenges is that neither the MUSV nor the LUSV has been designed yet— Among the challenges is that neither the MUSV nor the LUSV has been designed yet—
L3Harris wasL3Harris was ~~selected last year to build an~~ selected last year to build an MUSV prototype,MUSV prototype, ~~and~~ and six companiessix companies ~~are~~
~~working on LUSV design trade studies—so there isn’t a specific propulsion system~~ are working on LUSV design trade studies—so there isn’t a specific propulsion system or or
electrical distribution system yet that needs to be tested for reliability. electrical distribution system yet that needs to be tested for reliability.
Moton said that the “representative pieces of equipment” that prove themselves in land- Moton said that the “representative pieces of equipment” that prove themselves in land-
~~based testing~~ based testing will create a pool of “equipmentwill create a pool of “equipment that’s essentiallythat’s essentially been throughbeen through our our
qualification process to go on an LUSV, but we are also trying to come up with a way that’s qualification process to go on an LUSV, but we are also trying to come up with a way that’s
flexible” for industry toflexible” for industry to prove thatprove that ~~their components meet Navy~~ their components meet Navy systems engineering systems engineering
standards and congressional intent. He said the Navy is working with the American Bureau standards and congressional intent. He said the Navy is working with the American Bureau
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of Shipping to develop a framework for qualifying HM&E components as reliable enough of Shipping to develop a framework for qualifying HM&E components as reliable enough
for use in USVs. for use in USVs.
Moton Moton ~~said much still remains to be determined on MUSV and LUSV—and that’s~~ said much still remains to be determined on MUSV and LUSV—and that’s by by
design. Neither program has a formal capability development document (CDD) yet and are design. Neither program has a formal capability development document (CDD) yet and are
instead working off a less specific top-level requirement (TLR) document for now. Moton instead working off a less specific top-level requirement (TLR) document for now. Moton
said that was done on purpose, to give industry more space to look at cost and capability said that was done on purpose, to give industry more space to look at cost and capability
tradeoffs between potential designs and potential Defense Department requirements. tradeoffs between potential designs and potential Defense Department requirements. Al
All the at-sea testing happening with the prototypes today, as well as the six LUSVthe at-sea testing happening with the prototypes today, as well as the six LUSV industry industry
studies, will inform the path forward from today’s top-level requirements to more specific studies, will inform the path forward from today’s top-level requirements to more specific
requirements that will shape what the vessels look like and what capabilities they have. requirements that will shape what the vessels look like and what capabilities they have.
To keep cost down and to open up opportunities to more shipyards, “we are working our To keep cost down and to open up opportunities to more shipyards, “we are working our
best not to take just a typically manned combatant [specifications] and dial it back down; best not to take just a typically manned combatant [specifications] and dial it back down;
wewe ~~are trying to start where we can the other way, kind of a clean sheet and only~~ are trying to start where we can the other way, kind of a clean sheet and only add add
requirements back in if they are necessary for the support of the functions of the ship,” requirements back in if they are necessary for the support of the functions of the ship,”
Moton said.53 Moton said.53
Annual Procurement Rates
Another oversight issue for Congress concerns the Navy’s planned annual procurement rates for Another oversight issue for Congress concerns the Navy’s planned annual procurement rates for
the LUSV and XLUUVthe LUSV and XLUUV programs. Potential oversight questions for Congress include, What programs. Potential oversight questions for Congress include, What
factors did the Navy consider in arriving at them, and in light of these factors, are these rates too 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? high, too low, or about right?
Industrial Base Implications
Another oversight issue for Congress concerns the potential industrial base implications of these Another oversight issue for Congress concerns the potential industrial base implications of these
large UV programs as part of a shift to a more distributed fleet architecture, particularly since large UV programs as part of a shift to a more distributed fleet architecture, particularly since
UVs like these can be built and maintainedUVs like these can be built and maintained by facilities other than the shipyards that currently by facilities other than the shipyards that currently
build the Navy’s major combatant ships. Potential oversight questions for Congress include the build the Navy’s major combatant ships. Potential oversight questions for Congress include the
following: following:
 What implications would the more distributed architecture have for required  What implications would the more distributed architecture have for required
numbers, annual procurement rates, and maintenance workloads for large surface numbers, annual procurement rates, and maintenance workloads for large surface
combatants (i.e., cruisers and destroyers) and combatants (i.e., cruisers and destroyers) and ~~smal~~ small surface combatants (i.e., surface combatants (i.e.,
frigates and Littoral Combat Ships)? frigates and Littoral Combat Ships)?
 What portion of these UVs might be built or maintained by facilities other than  What portion of these UVs might be built or maintained by facilities other than
shipyards that currently build the Navy’s major combatant ships?54 shipyards that currently build the Navy’s major combatant ships?54
 To what degree, if any, might the more distributed architecture and these large  To what degree, if any, might the more distributed architecture and these large
UV programs change the current distribution of Navy shipbuilding and UV programs change the current distribution of Navy shipbuilding and
maintenance work, and what implications might that have for workloads and maintenance work, and what implications might that have for workloads and
employment levels at various production and maintenance facilities? employment levels at various production and maintenance facilities?
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

53 Megan Eckstein, “53 Megan Eckstein, “ Navy Developing Land-Based Unmanned VehicleNavy Developing Land-Based Unmanned Vehicle ~~T esting~~ Testing Sites as Early Design Sites as Early Design Work Work
Continues,” Continues,” USNI News,, April 13, 2021. April 13, 2021.
54 For an opinion piece addressing54 For an opinion piece addressing this issue,this issue, see Collin Fox, “see Collin Fox, “ Distributed Manufacturing for Distributed Lethality,” Distributed Manufacturing for Distributed Lethality,”
Center for International Maritime Security (CIMSEC), February 26, 2021.Center for International Maritime Security (CIMSEC), February 26, 2021.
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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 As ~~autonomous systems proliferate in the air and on~~ autonomous systems proliferate in the air and on the ocean, [opposing]the ocean, [opposing] military military
commanders may feel emboldened to strike these platforms, expecting lower repercussions commanders may feel emboldened to strike these platforms, expecting lower repercussions
by avoiding the loss of human life. by avoiding the loss of human life.
Consider Consider ~~when Chinese naval personnel in a small boat seized an unmanned~~ when Chinese naval personnel in a small boat seized an unmanned American American
underwater survey glider55 in the sea approximately 100 kilometers off the Philippines in underwater survey glider55 in the sea approximately 100 kilometers off the Philippines in
December 2016. The winged, torpedo-shaped unit was within sight of its handlers aboard December 2016. The winged, torpedo-shaped unit was within sight of its handlers aboard
thethe ~~U.S. Navy oceanographic vessel Bowditch, who gaped in astonishment as it was~~
~~summarily hoisted aboard a Chinese warship less than a kilometer distant. The~~ U.S. Navy oceanographic vessel Bowditch, who gaped in astonishment as it was summarily hoisted aboard a Chinese warship less than a kilometer distant. The U.S. U.S.
responded with a diplomatic demarche and congressional opprobrium, andresponded with a diplomatic demarche and congressional opprobrium, and the glider was the glider was
returned within the week…. returned within the week….
In coming In coming ~~years, the Chinese~~ years, the Chinese military will find increasinglymilitary will find increasingly ~~plentiful opportunities~~ plentiful opportunities to to
intercept American autonomous systems. The 40-meter prototype trimaran Sea Hunter, an intercept American autonomous systems. The 40-meter prototype trimaran Sea Hunter, an
experimental submarine-tracking vessel, recently transited between Hawaii and San Diego experimental submarine-tracking vessel, recently transited between Hawaii and San Diego
without human intervention. It has yet to be used operationally, but it is only a matter of without human intervention. It has yet to be used operationally, but it is only a matter of
time before such vessels are deployed…. time before such vessels are deployed….
China’s navy may find intercepting such unmanned and unchaperoned surface vessels or China’s navy may find intercepting such unmanned and unchaperoned surface vessels or
mini-submarines too tantalizing to pass up, especially if Washington’s meek retort to the mini-submarines too tantalizing to pass up, especially if Washington’s meek retort to the
2016 glider incident is seen as an indication of American permissiveness or timidity. 2016 glider incident is seen as an indication of American permissiveness or timidity.
With a captive vessel, persevering Chinese technicians could attempt to bypass anti-tamper With a captive vessel, persevering Chinese technicians could attempt to bypass anti-tamper
mechanisms, and if successful, proceed to siphon off communication codes or proprietary mechanisms, and if successful, proceed to siphon off communication codes or proprietary
artificial intelligenceartificial intelligence ~~software, download navigational data or pre-programmed rules of~~
~~engagement, or probe for cyber vulnerabilities that could b e exploited against similar~~
~~vehicles….~~
~~Nearly 100,000~~ software, download navigational data or pre-programmed rules of engagement, or probe for cyber vulnerabilities that could be exploited against similar vehicles…. Nearly 100,000 ships transit the strategically vital Singapore Strait annually, where more ships transit the strategically vital Singapore Strait annually, where more
than 75 collisions or groundings occurred last year alone. In such congested international than 75 collisions or groundings occurred last year alone. In such congested international
sea lanes, declaring a foreign navy’s autonomous vessel wayward or unresponsive would sea lanes, declaring a foreign navy’s autonomous vessel wayward or unresponsive would
easily serve as convenient rationale for towing it into territorial waters for impoundment, easily serve as convenient rationale for towing it into territorial waters for impoundment,
or for boarding it straightaway…. or for boarding it straightaway….
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

~~55 A glider is a type of UUV. T he glider in question was a few~~ 55 A glider is a type of UUV. The glider in question was a few feet in length and resembledfeet in length and resembled a small torpedo with a pair a small torpedo with a pair
of wings.of wings. For a press report about the seizure of the glider, see, for example, SamFor a press report about the seizure of the glider, see, for example, Sam LaGrone, “LaGrone, “ Updated: Chinese Seize Updated: Chinese Seize
U.S.U.S. Navy Unmanned Vehicle,”Navy Unmanned Vehicle,” USNI News,, December 16, 2016. December 16, 2016.
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should should ~~interact with their autonomous counterparts. Without such guidance, the risk of~~
~~miscalculation increases.~~
~~An incident without any immediate human presence or losses could nonetheless~~ interact with their autonomous counterparts. Without such guidance, the risk of miscalculation increases. An incident without any immediate human presence or losses could nonetheless trigger trigger
unexpected escalation and spark the next conflict.56 unexpected escalation and spark the next conflict.56
Personnel Implications
Another oversight issue for Congress concerns the potential personnel implications of Another oversight issue for Congress concerns the potential personnel implications of
incorporating a significant number of large UVs into the Navy’s fleet architecture. Potential incorporating a significant number of large UVs into the Navy’s fleet architecture. Potential
questions for Congress include the following: questions for Congress include the following:
 What implications might these large UVs have for the required  What implications might these large UVs have for the required ~~skil s~~skills, training, , training,
and career paths of Navy personnel? and career paths of Navy personnel?
 Within the Navy, what  Within the Navy, what ~~wil~~ will be the relationship between personnel who crew be the relationship between personnel who crew
manned ships and those who operate these large UVs? manned ships and those who operate these large UVs?
Annual Funding
Another oversight issue for Congress concerns the funding amounts for these programs that the Another oversight issue for Congress concerns the funding amounts for these programs that the
Navy has requested for these programs for FY2022. Potential oversight questions for Congress Navy has requested for these programs for FY2022. 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 FY2022? do in FY2022?
 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 FY2022? in FY2022?
 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
Summary of Congressional Action on FY2022 Funding Request
Table 1 summarizes congressional action on the Navy’s FY2022 funding request for the LUSV, summarizes congressional action on the Navy’s FY2022 funding request for the LUSV,
MUSV, and XLUUVMUSV, and XLUUV programs and their enabling technologies. programs and their enabling technologies.

56 Evan Karlik, “US-China 56 Evan Karlik, “US-China ~~T ensions~~Tensions—Unmanned Military Craft Raise Risk—Unmanned Military Craft Raise Risk of War,” of War,” Nikkei Asian Review, June, June 28, 28,
2019. See also David B.2019. See also David B. Larter, “Larter, “~~T he~~The US Navy Says US Navy Says It’s Doing Its Best to Avoid a ‘It’s Doing Its Best to Avoid a ‘~~T erminator~~Terminator’ Scenario in Quest for ’ Scenario in Quest for
Autonomous Weapons,” Autonomous Weapons,” Defense News,, September 12, 2019; David Axe, “September 12, 2019; David Axe, “ Autonomous Navies CouldAutonomous Navies Could Make War More Make War More
Likely,” Likely,” National Interest, August, August 17, 2020. 17, 2020.
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Table 1. Congressional Action on FY2022 Large UV Funding Request
~~Mil ions of dol ars~~Millions of dollars, rounded to the nearest tenth , rounded to the nearest tenth

Authorization
Appropriation
Conf Navy research and development account
Request HASC
SASC
~~Conf~~.
HAC
SAC
Conf.
PE 0603178N, Medium and Large Unmanned Surface PE 0603178N, Medium and Large Unmanned Surface
144.8 144.8

102.8

Vessels Vessels (USVs) (line 28) (USVs) (line 28)
Project 3066: Large Unmanned ~~Surface~~ Surface Vessel (LUSV)
(144.8)

(102.8)

PE 0605512N Medium Unmanned Surface Vehicles PE 0605512N Medium Unmanned Surface Vehicles
60.0 60.0

60.0

(MUSVs) (line 95) (MUSVs) (line 95)
Project 3428 Medium ~~Unmanned~~ Unmanned Surface Vehicle ~~(MUSV)~~
~~60.0~~ (60.0)

(60.0)

(MUSV) PE 0605513N, Unmanned Surface Vehicle Enabling PE 0605513N, Unmanned Surface Vehicle Enabling
170.8 170.8

83.6

Capabilities (line 96) Capabilities (line 96)
Project 3067: Unmanned Surface Vehicle Enabling
(170.8)

(83.6)

Capabilities
PE 0604536N, Advanced Undersea Prototyping (line 90) PE 0604536N, Advanced Undersea Prototyping (line 90)
58.5 58.5

47.8

Project 3394: Advanced Undersea Prototyping-Vehicles,
(58.5)

(47.8)

Propulsion, and & Navigation
TOTAL
434.1

294.2

Sources: Table prepared by CRS based on FY2022 Navy budget submission,Table prepared by CRS based on FY2022 Navy budget submission, ~~committee~~ committee and conference reports, and conference reports,
and explanatory statements on the FY2022 National Defense Authorization Act and the FY2022 DOD and explanatory statements on the FY2022 National Defense Authorization Act and the FY2022 DOD
Appropriations Act. Appropriations Act.
Notes: PE is program is program element (i.e.,element (i.e., a line itema line item in a DOD researchin a DOD research and developmentand development account). account). HASC is House is House
ArmedArmed ~~Services~~ Services Committee;Committee; SASC is Senate Armed is Senate Armed ~~Services~~ Services Committee;Committee; HAC is House Appropriations is House Appropriations
Committee;Committee; SAC is Senate Appropriations is Senate Appropriations Committee;Committee; Conf. is conference agreement. is conference agreement.

~~Author Information~~

~~Ronald O'Rourke~~

~~Specialist in Naval Affairs~~

~~Congressional Research Service~~
29

~~Navy Large Unmanned~~ FY2022 DOD Appropriations Act (H.R. 4432) House The House Appropriations Committee, in its report (H.Rept. 117-88 of July 15, 2021) on H.R. 4432, recommended the funding levels shown in the HAC column of Table 1. The recommended reduction of $42.0 million for line 28 is for “LUSV integrated combat system early to need.” (Page 265). The recommended reduction of $87.286 million for line 96 is for “USV machinery qualification unjustified request” ($47.311 million), “Autonomy development concurrency” ($7.125 million), “Unmanned communications excess growth” ($20.35 million), “Elevated sensors excess growth” ($5.5 million), and “USV operations center concurrency” ($7.0 million). (Page 268) The recommended reduction of $10.707 million for lien 90 is for “Test and evaluation excess to need.” (Page 29) Congressional Research Service 29 Navy Large Unmanned Surface and Undersea Vehicles Author Information Ronald O'Rourke Specialist in Naval Affairs ~~Surface and Undersea Vehicles~~

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